Designation of Alpha-Phenylacetoacetonitrile (APAAN), a Precursor Chemical Used in the Illicit Manufacture of Phenylacetone, Methamphetamine, and Amphetamine, as a List I Chemical, 89402-89407 [2016-29523]
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Federal Register / Vol. 81, No. 238 / Monday, December 12, 2016 / Proposed Rules
within a 6.8-mile radius of the airport
would be established for IFR operations.
Class E airspace designations are
published in Paragraph 6005 of FAA
Order 7400.11A, dated August 3, 2016,
and effective September 15, 2016, which
is incorporated by reference in 14 CFR
71.1. The Class E airspace designation
listed in this document will be
published subsequently in the Order.
Regulatory Notices and Analyses
The FAA has determined that this
proposed regulation only involves an
established body of technical
regulations for which frequent and
routine amendments are necessary to
keep them operationally current. It,
therefore: (1) Is not a ‘‘significant
regulatory action’’ under Executive
Order 12866; (2) is not a ‘‘significant
rule’’ under DOT Regulatory Policies
and Procedures (44 FR 11034; February
26, 1979); and (3) does not warrant
preparation of a Regulatory Evaluation
as the anticipated impact is so minimal.
Since this is a routine matter that will
only affect air traffic procedures and air
navigation, it is certified that this
proposed rule, when promulgated, will
not have a significant economic impact
on a substantial number of small entities
under the criteria of the Regulatory
Flexibility Act.
Environmental Review
This proposal would be subject to an
environmental analysis in accordance
with FAA Order 1050.1F,
‘‘Environmental Impacts: Policies and
Procedures’’ prior to any FAA final
regulatory action.
Airspace, Incorporation by reference,
Navigation (air).
The Proposed Amendment
In consideration of the foregoing, the
Federal Aviation Administration
proposes to amend 14 CFR part 71 as
follows:
PART 71—DESIGNATION OF CLASS A,
B, C, D, AND E AIRSPACE AREAS; AIR
TRAFFIC SERVICE ROUTES; AND
REPORTING POINTS
1. The authority citation for Part 71
continues to read as follows:
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■
Authority: 49 U.S.C. 106(f), 106(g); 40103,
40113, 40120; E.O. 10854, 24 FR 9565, 3 CFR,
1959–1963 Comp., p. 389.
[Amended]
2. The incorporation by reference in
14 CFR 71.1 of FAA Order 7400.11A,
Airspace Designations and Reporting
Points, dated August 3, 2016, effective
■
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Paragraph 6005 Class E Airspace Areas
Extending Upward From 700 Feet or More
Above the Surface of the Earth.
*
*
*
*
*
ASO GA E5 Louisville, GA [New]
Louisville Municipal Airport, GA
(Lat. 32°59′09″ N., long. 82°23′05″ W.)
That airspace extending upward from 700
feet above the surface within a 6.8-mile
radius of Louisville Municipal Airport.
Issued in College Park, Georgia, on
November 30, 2016.
Ryan W. Almasy,
Manager, Operations Support Group, Eastern
Service Center, Air Traffic Organization.
[FR Doc. 2016–29631 Filed 12–9–16; 8:45 am]
BILLING CODE 4910–13–P
DEPARTMENT OF JUSTICE
Drug Enforcement Administration
21 CFR Part 1310
[Docket No. DEA–379]
RIN 1117–ZA04
Designation of AlphaPhenylacetoacetonitrile (APAAN), a
Precursor Chemical Used in the Illicit
Manufacture of Phenylacetone,
Methamphetamine, and Amphetamine,
as a List I Chemical
Drug Enforcement
Administration, Department of Justice.
ACTION: Notice of proposed rulemaking.
AGENCY:
The Drug Enforcement
Administration is proposing to
designate the chemical alphaphenylacetoacetonitrile (APAAN) and
its salts, optical isomers, and salts of
optical isomers, as a list I chemical
under the Controlled Substances Act.
APAAN is used in clandestine
laboratories to illicitly manufacture the
schedule II controlled substances
phenylacetone (also known as phenyl-2propanone or P2P), methamphetamine,
and amphetamine and is important to
the manufacture of these controlled
substances. This action does not
propose the establishment of a threshold
for domestic and international
transactions of APAAN. As such, all
transactions involving APAAN,
regardless of size, would be regulated.
In addition, this action proposes that
chemical mixtures containing APAAN
would not be exempt from regulatory
requirements at any concentration.
Therefore, all transactions of chemical
mixtures containing any quantity of
SUMMARY:
Lists of Subjects in 14 CFR Part 71
§ 71.1
September 15, 2016, is amended as
follows:
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APAAN would be regulated pursuant to
the Controlled Substances Act.
DATES: Electronic comments must be
submitted, and written comments must
be postmarked, on or before January 11,
2017. Commenters should be aware that
the electronic Federal Docket
Management System will not accept
comments after 11:59 p.m. Eastern Time
on the last day of the comment period.
ADDRESSES: To ensure proper handling
of comments, please reference ‘‘Docket
No. DEA–379’’ on all correspondence,
including any attachments.
The Drug Enforcement
Administration encourages that all
comments be submitted electronically
through the Federal eRulemaking Portal,
which provides the ability to type short
comments directly into the comment
field on the Web page or to attach a file
for lengthier comments. Please go to
https://www.regulations.gov/ and follow
the online instructions at that site for
submitting comments. Upon completion
of your submission, you will receive a
Comment Tracking Number for your
comment. Please be aware that
submitted comments are not
instantaneously available for public
view on Regulations.gov. If you have
received a Comment Tracking Number,
your comment has been successfully
submitted and there is no need to
resubmit the same comment. Paper
comments that duplicate the electronic
submission are not necessary and are
discouraged. Should you wish to mail a
paper comment in lieu of an electronic
comment, it should be sent via regular
or express mail to: Drug Enforcement
Administration, Attn: DEA Federal
Register Representative/ODW, 8701
Morrissette Drive, Springfield, Virginia
22152.
FOR FURTHER INFORMATION CONTACT:
Michael J. Lewis, Office of Diversion
Control, Drug Enforcement
Administration; Mailing Address: 8701
Morrissette Drive, Springfield, Virginia
22152; Telephone: (202) 598–6812.
SUPPLEMENTARY INFORMATION:
Posting of Public Comments
Please note that all comments
received are considered part of the
public record. They will, unless
reasonable cause is given, be made
available by the Drug Enforcement
Administration (DEA) for public
inspection online at https://
www.regulations.gov. Such information
includes personal identifying
information (such as name, address,
etc.) voluntarily submitted by the
commenter. The Freedom of
Information Act (FOIA) applies to all
comments received. If you want to
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submit personal identifying information
(such as your name, address, etc.) as
part of your comment, but do not want
it to be made publicly available, you
must include the phrase ‘‘PERSONAL
IDENTIFYING INFORMATION’’ in the
first paragraph of your comment. You
must also place all of the personal
identifying information you do not want
made publicly available in the first
paragraph of your comment and identify
what information you want redacted.
If you want to submit confidential
business information as part of your
comment, but do not want it to be made
publicly available, you must include the
phrase ‘‘CONFIDENTIAL BUSINESS
INFORMATION’’ in the first paragraph
of your comment. You must also
prominently identify confidential
business information to be redacted
within the comment.
Comments containing personal
identifying information and confidential
business information identified as
directed above will generally be made
publicly available in redacted form. If a
comment has so much confidential
business information or personal
identifying information that it cannot be
effectively redacted, all or part of that
comment may not be made publicly
available. Comments posted to https://
www.regulations.gov may include any
personal identifying information (such
as name, address, and phone number)
included in the text of your electronic
submission that is not identified as
directed above as confidential.
An electronic copy of this proposed
rule is available at https://
www.regulations.gov for easy reference.
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Legal Authority
The DEA implements and enforces
titles II and III of the Comprehensive
Drug Abuse Prevention and Control Act
of 1970, as amended. 21 U.S.C. 801–971.
Titles II and III are referred to as the
‘‘Controlled Substances Act’’ and the
‘‘Controlled Substances Import and
Export Act,’’ respectively, and are
collectively referred to as the
‘‘Controlled Substances Act’’ or the
‘‘CSA’’ for the purpose of this action.
The DEA publishes the implementing
regulations for these statutes in title 21
of the Code of Federal Regulations
(CFR), chapter II. The CSA and its
implementing regulations are designed
to prevent, detect, and eliminate the
diversion of controlled substances and
listed chemicals into the illicit market
while providing for the legitimate
medical, scientific, research, and
industrial needs of the United States.
Controlled substances have the potential
for abuse and dependence and are
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controlled to protect the public health
and safety.
The CSA gives the Attorney General
the authority to specify, by regulation,
chemicals as list I or list II chemicals.
21 U.S.C. 802(34) and (35). A ‘‘list I
chemical’’ is a chemical that is used in
manufacturing a controlled substance in
violation of title II of the CSA and is
important to the manufacture of the
controlled substance. 21 U.S.C. 802(34).
A ‘‘list II chemical’’ is a chemical (other
than a list I chemical) that is used in
manufacturing a controlled substance in
violation of title II of the CSA. 21 U.S.C.
802(35). The current list of all listed
chemicals is published at 21 CFR
1310.02. Pursuant to 28 CFR 0.100(b),
the Attorney General has delegated her
authority to designate list I and list II
chemicals to the Administrator of the
Drug Enforcement Administration.
In addition, the United States is a
Party to the 1988 United Nations
Convention against Illicit Traffic in
Narcotic Drugs and Psychotropic
Substances (1988 Convention). When
the United States receives notification
that a chemical has been added to Table
I or Table II of the 1988 Convention
pursuant to article 12, the United States
is required to take measures it deems
appropriate to monitor the manufacture
and distribution of that chemical within
the United States and to prevent its
diversion. In addition, the 1988
Convention requires the United States to
take other specified measures related to
that chemical, including measures
related to its international trade.
Background
By a letter dated April 9, 2014, the
Secretary-General of the United Nations
informed the United States Government
that the chemical alphaphenylacetoacetonitrile (APAAN) was
added to Table I of the 1988
Convention. This letter was prompted
by a March 19, 2014, decision at the
57th Session of the United Nations
Commission on Narcotic Drugs (CND) to
add APAAN to Table I. As a Party to the
1988 Convention, the United States is
obligated, pursuant to article 12, to take
measures it deems appropriate to
monitor the manufacture and
distribution of APAAN within the
United States and to prevent its
diversion. Article 12 also obligates the
United States to take other specified
measures related to APAAN, including
measures related to its international
trade. By designating APAAN as a list
I chemical, the United States will fulfill
its obligations under the 1988
Convention.
APAAN is a primary precursor for the
manufacture of phenylacetone (also
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known as phenyl-2-propanone (P2P) or
benzyl methyl ketone),
methamphetamine, and amphetamine.
Throughout the 1970s,
methamphetamine was illicitly
produced in the United States, primarily
with the precursor chemical P2P. In
response to the illicit use of P2P, the
DEA controlled P2P as a schedule II
controlled substance in 1980 pursuant
to the ‘‘immediate precursor’’ provisions
of the CSA, specifically 21 U.S.C.
811(e). Clandestine laboratory operators
responded by developing a variety of
synthetic methods for producing P2P.
Congress and the DEA responded
with the implementation of controls on
P2P precursor chemicals such as
phenylacetic acid (and its salts and
esters), acetic anhydride, benzyl
cyanide, benzaldehyde, and nitroethane,
all of which are controlled as listed
chemicals. 21 CFR 1310.02 (a)–(b).
However, clandestine laboratory
operators soon adjusted to these
controls on P2P (and its precursors). As
an alternative for methamphetamine
production, clandestine laboratory
operators used the precursors ephedrine
and pseudoephedrine, and as an
alternative for amphetamine production,
they used the precursor
phenylpropanolamine.
This led Congress and the DEA to
implement stringent controls on the
manufacture, distribution, importation,
and exportation of ephedrine (its salts,
optical isomers, and salts of optical
isomers), pseudoephedrine, and
phenylpropanolamine (controlled as list
I chemicals), and pharmaceutical
products containing these chemicals.
The international community soon took
similar measures.
With the growing problem of illicit
drug production, the issue of precursor
chemical control has gained global
attention. International efforts to
prevent the illicit production of
amphetamine-type stimulants
(including amphetamine and
methamphetamine), and international
control of precursors, have made
significant progress. International
controls on precursors were established
under article 12 of the 1988
Convention.1 The 1988 Convention
established two categories of controlled
illicit drug precursor substances: Table
I and Table II.2 Two international
entities have played a crucial role in
this effort: The United Nations
Commission on Narcotic Drugs (CND)
1 Dec.
20, 1988, 1582 U.N.T.S. 95.
I and Table II are annexed to the
Convention.
2 Table
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and the International Narcotics Control
Board.
In response to domestic and
international controls on amphetamine
and methamphetamine precursors,
clandestine laboratory operators have
continued to explore alternate methods
of making these illicit drugs, including
developing techniques to manufacture
their own precursors and diverting other
precursors to produce these precursors.
This has led clandestine laboratory
operators to utilize the P2P precursor
APAAN. Clandestine laboratory
operators currently use APAAN to
manufacture P2P, which they then
convert to methamphetamine and
amphetamine.
APAAN
APAAN also goes by the names: 1cyano-1-phenylpropan-2-one; 2phenylacetoacetonitrile; 2-acetyl-2phenylacetonitrile; alpha-acetylbenzene acetonitrile; phenyl acetoacetonitrile; a-acetylphenylacetonitrile;
3-oxo-2-phenylbutanenitrile; CAS
Number: 4468–48–8; and Identification
Number: UN3439.
The DEA has long been aware of
APAAN’s potential illicit use as a
primary precursor for the production of
P2P. The synthesis of P2P from benzyl
cyanide involves the manufacture of
APAAN prior to the final synthesis of
P2P. Therefore, benzyl cyanide and
APAAN share the same synthetic
pathway in the production of P2P. In
the late 1980’s the DEA advocated for
the Congressional control of the P2P
precursor benzyl cyanide as a list I
chemical.
Due to the lack of industrial uses of
APAAN, there has historically been a
lack of available product for potential
diversion. In recent years, however,
large international seizures of APAAN
have been made, primarily in Europe,
which suggest there is a ready supply of
APAAN from international chemical
manufacturers.
While the DEA has encountered one
clandestine laboratory in the United
States utilizing this synthetic pathway
in recent years, the DEA’s European
counterparts have made a large number
of APAAN seizures. For calendar years
2009 through 2014, the European
Commission has documented at least
113 seizures and stop shipments,
involving over 80 metric tons of
APAAN. Many of these seizures were
associated with seizures of P2P and
amphetamine. Many of these APAAN
seizures originated from chemical
suppliers based in Asia.
The DEA has determined that APAAN
is now readily available from
commercial chemical suppliers and has
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identified 34 potential suppliers in
China, 6 potential suppliers in the
United States, 2 in Russia, and 1 each
in Bulgaria, Cameroon, the Czech
Republic, France, and Germany.
The DEA is concerned about the ease
with which APAAN serves as a
precursor chemical for illicit controlled
substance production and with the
international trafficking in this
chemical. The international community
echoes this concern. As noted above, the
CND has added APAAN to Table I of the
1988 Convention. Therefore, the DEA is
proposing the designation of APAAN as
a list I chemical.
Proposed Designation of APAAN and
Its Salts, Optical Isomers, and Salts of
Optical Isomers as a List I Chemical
The CSA, specifically 21 U.S.C.
802(34), and its implementing
regulations at 21 CFR 1310.02(c),
provides the Attorney General with the
authority to specify, by regulation, a
chemical as a ‘‘list I chemical’’ if the
chemical is used in the manufacture of
a controlled substance in violation of
the CSA and is important to the
manufacture of these controlled
substances. Clandestine laboratory
operators are using APAAN as the
precursor material for the illicit
manufacture of P2P, methamphetamine,
and amphetamine. These three
substances are all controlled substances
under the CSA. APAAN is a primary
precursor for P2P, for subsequent
conversion to methamphetamine or
amphetamine. Therefore, APAAN is
important to the manufacture of a
controlled substance. This action
proposes the designation of APAAN as
a list I chemical because the DEA finds
that APAAN is used in the illicit
manufacture of these controlled
substances and is important to the illicit
manufacture of these controlled
substances.
If finalized, handlers of APAAN
would become subject to the chemical
regulatory provisions of the CSA,
including 21 CFR parts 1309, 1310,
1313, and 1316. Since even a small
amount of APAAN can make a
significant amount of P2P, this action
does not propose the establishment of a
threshold for domestic and import
transactions of APAAN in accordance
with the provisions of 21 CFR
1310.04(g). Therefore, the DEA is
proposing that all APAAN transactions,
regardless of size, will be regulated
transactions as defined in 21 CFR
1300.02(b). As such, if finalized, all
APAAN transactions will be subject to
recordkeeping, reporting, import and
export controls, and other CSA chemical
regulatory requirements. In addition,
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each regulated bulk manufacturer shall
submit manufacturing, inventory, and
use data on an annual basis.
Chemical Mixtures of APAAN
This rulemaking also proposes that
chemical mixtures containing APAAN
would not be exempt from regulatory
requirements at any concentration
unless an application for exemption of
a chemical mixture is submitted by an
APAAN manufacturer and the
application is reviewed and accepted
and the mixture exempted by the DEA
under 21 CFR 1310.13 (Exemption by
Application Process). Since even a small
amount of APAAN yields a significant
amount of P2P, the DEA believes that
regulation of chemical mixtures
containing any amount of APAAN is
necessary to prevent the illicit
extraction, isolation, and use of the
APAAN. Therefore, all chemical
mixtures containing any quantity of
APAAN would be subject to CSA
control, unless the APAAN
manufacturer is granted an exemption
by the application process in
accordance with 21 CFR 1310.13. This
rule proposes the modification of the
‘‘Table of Concentration Limits’’ in 21
CFR 1310.12(c) to reflect the fact that
chemical mixtures containing any
amount of APAAN are subject to CSA
chemical control provisions.
Exemption by Application Process
The DEA has implemented an
application process to exempt certain
chemical mixtures from the
requirements of the CSA and its
implementing regulations. 21 CFR
1310.13. Manufacturers may submit an
application for exemption for those
mixtures that do not qualify for
automatic exemption. Exemption status
may be granted if the DEA determines
that the mixture is formulated in such
a way that it cannot be easily used in
the illicit production of a controlled
substance and that the listed chemical
or chemicals cannot be readily
recovered. 21 CFR 1310.13(a)(1)–(2).
Requirements for Handling List I
Chemicals
If finalized as proposed, the
designation of APAAN as a list I
chemical will subject APAAN handlers
(manufacturers, distributors, importers,
and exporters), and proposed handlers,
to all of the regulatory controls and
administrative, civil, and criminal
actions applicable to the manufacture,
distribution, importing, and exporting of
a list I chemical. Upon publication of a
final rule, persons potentially handling
APAAN, including regulated chemical
mixtures containing APAAN, would be
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required to comply with the following
list I chemical regulations:
1. Registration. Any person who
manufactures, distributes, imports, or
exports APAAN, or proposes to engage
in the manufacture, distribution,
importation, or exportation of APAAN,
must obtain a registration pursuant to 21
U.S.C. 822, 823, 957, 958. Regulations
describing registration for list I chemical
handlers are set forth in 21 CFR part
1309. Consistent with 21 CFR parts 1309
and 1310, separate registrations will be
required for manufacturing,
distribution, importing, and exporting of
APAAN. Different locations operated by
a single entity require separate
registration if any location is involved
with the manufacture, distribution,
importation, or exportation of APAAN.
Further, a separate registration is
required for each principal place of
business at one general physical
location where list I chemicals are
manufactured, distributed, imported, or
exported by a person. 21 CFR 1309.23.
Any person manufacturing, distributing,
importing, or exporting an APAAN
chemical mixture will be subject to the
registration requirement under the CSA
as well.
The DEA notes that warehouses are
exempt from the requirement of
registration and may lawfully possess
list I chemicals, if the possession of
those chemicals is in the usual course
of business or employment. 21 U.S.C.
822(c)(2), 21 U.S.C. 957(b)(1)(B). For
purposes of this exemption, the
warehouse must receive the list I
chemical from a DEA registrant and
shall only distribute the list I chemical
back to the DEA registrant and
registered location from which it was
received. All other activities conducted
by a warehouse do not fall under this
exemption; a warehouse that distributes
list I chemicals to persons other than the
registrant and registered location from
which they were obtained is conducting
distribution activities and is required to
register as such. 21 CFR 1309.23(b)(1).
Upon publication of a final rule, any
person manufacturing, distributing,
importing, or exporting APAAN or a
chemical mixture containing APAAN
will become subject to the registration
requirement under the CSA. The DEA
recognizes, however, that it is not
possible for persons who are subject to
the registration requirement to
immediately complete and submit an
application for registration and for the
DEA to immediately issue registrations
for those activities. Therefore, to allow
continued legitimate commerce in
APAAN, the DEA is proposing to
establish in 21 CFR 1310.09 a temporary
exemption from the registration
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requirement for persons desiring to
engage in activities with APAAN,
provided that the DEA receives a
properly completed application for
registration on or before 30 days after
publication of a final rule implementing
regulations regarding APAAN. The
temporary exemption for such persons
will remain in effect until the DEA takes
final action on their application for
registration or application for exemption
of a chemical mixture.
The temporary exemption applies
solely to the registration requirement;
all other chemical control requirements,
including recordkeeping and reporting,
would become effective on the effective
date of the final rule. Therefore, all
transactions of APAAN and chemical
mixtures containing APAAN will be
regulated while an application for
registration or exemption is pending.
This is necessary because not regulating
these transactions could result in
increased diversion of chemicals
desirable to drug traffickers.
Additionally, the temporary
exemption does not suspend applicable
federal criminal laws relating to
APAAN, nor does it supersede State or
local laws or regulations. All handlers of
APAAN must comply with applicable
State and local requirements in addition
to the CSA regulatory controls.
2. Records and Reports. Every DEA
registrant would be required to maintain
records and reports with respect to
APAAN pursuant to 21 U.S.C. 830 and
in accordance with 21 CFR part 1310.
Pursuant to 21 CFR 1310.04, a record
must be made and maintained for two
years after the date of a transaction
involving a listed chemical, provided
the transaction is a regulated
transaction.
Each regulated bulk manufacturer of a
listed chemical will be required to
submit manufacturing, inventory, and
use data on an annual basis. 21 CFR
1310.05(d). Existing standard industry
reports containing the required
information will be acceptable,
provided the information is separate or
readily retrievable from the report.
21 CFR 1310.05(a) requires that each
regulated person shall report to the DEA
any regulated transaction involving an
extraordinary quantity of a listed
chemical, an uncommon method of
payment or delivery, or any other
circumstance that the regulated person
believes may indicate that the listed
chemical will be used in violation of the
CSA and its corresponding regulations.
Regulated persons are also required to
report any proposed regulated
transaction with a person whose
description or other identifying
characteristics the Administration has
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previously furnished to the regulated
person; any unusual or excessive loss or
disappearance of a listed chemical
under the control of the regulated
person; any in-transit loss in which the
regulated person is the supplier; and
any domestic regulated transaction in a
tableting or encapsulating machine.
3. Importation and Exportation. All
importation and exportation of APAAN
would need to be in compliance with 21
U.S.C. 957, 958, and 971 and in
accordance with 21 CFR part 1313.
4. Security. All applicants and
registrants would be required to provide
effective controls against theft and
diversion in accordance with 21 CFR
1309.71–1309.73.
5. Administrative Inspection. Places,
including factories, warehouses, or
other establishments and conveyances,
where registrants or other regulated
persons may lawfully hold,
manufacture, distribute, or otherwise
dispose of a list I chemical or where
records relating to those activities are
maintained, are controlled premises as
defined in 21 U.S.C. 880(a) and 21 CFR
1316.02(c). The CSA (21 U.S.C. 880)
allows for administrative inspections of
these controlled premises as provided in
21 CFR part 1316, subpart A.
6. Liability. Any activity involving
APAAN not authorized by, or in
violation of, the CSA, would be
unlawful, and may subject the person to
administrative, civil, and/or criminal
action.
Regulatory Analyses
Executive Orders 12866 and 13563
This notice of proposed rulemaking,
which proposes the designation of
APAAN as a list I chemical, has been
developed in accordance with the
principles of Executive Orders 12866
and 13563. The DEA followed the
principles of these Executive Orders,
even though it has been determined that
this action is not a significant regulatory
action.
To determine whether this action is a
significant regulatory action, the DEA
utilized a least cost option analysis. At
the outset, the DEA determined that the
primary costs of this rule would come
from complying with the registration,
recordkeeping, reporting, and export
and import requirements set forth in the
CSA. Therefore, under the least cost
option, an entity would choose to
discontinue the sale of APAAN if
proceeds from the sale are less than the
cost of complying with the rule.
The DEA has not identified any
industrial uses of APAAN by domestic
entities and its potential usage appears
to be limited to research. Based on
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independent research following a 2013
United Nations Questionnaire/Survey
on APAAN, the DEA identified three
entities that have each imported
APAAN. Two of the three entities had
average annual sales of APAAN totaling
$13 during the analysis period. The
third entity had average annual sales of
APAAN totaling $1,440 during the same
period. Other chemical distributors list
APAAN in their chemical catalogs.
However, these entities do not
manufacture APAAN, instead opting to
purchase APAAN from international
sources to fill special orders. These
entities do not stock APAAN in
inventory and the vast majority had no
previous sales of APAAN.
The registration fee to import a list I
chemical is $1,523 per year. Based on
the least cost option, these three entities
would choose to discontinue the sale of
APAAN because complying with the
rule is more costly. Thus, the annual
economic impact of the rule is $1,467
(total annual sales of APAAN from the
three affected entities). Therefore, this is
evidence that this proposed rule would
not have an annual effect on the
economy of $100 million or more and is
not a significant regulatory action.
Executive Order 12988
This proposed regulation meets the
applicable standards set forth in
sections 3(a) and 3(b)(2) of Executive
Order 12988 to eliminate drafting errors
and ambiguity, minimize litigation,
provide a clear legal standard for
affected conduct, and promote
simplification and burden reduction.
srobinson on DSK5SPTVN1PROD with PROPOSALS
Executive Order 13132
This proposed rulemaking does not
have federalism implications warranting
the application of Executive Order
13132. The proposed rule does not have
substantial direct effects on the States,
on the relationship between the national
government and the States, or the
distribution of power and
responsibilities among the various
levels of government.
Executive Order 13175
This proposed rule does not have
tribal implications warranting the
application of Executive Order 13175. It
does not have substantial direct effects
on one or more Indian tribes, on the
relationship between the Federal
Government and Indian tribes, or on the
distribution of power and
responsibilities between the Federal
Government and Indian tribes.
Regulatory Flexibility Act
The Acting Administrator, in
accordance with the Regulatory
Flexibility Act (RFA), 5 U.S.C. 601–612,
has reviewed this proposed rule and by
approving it certifies that it will not
have a significant economic impact on
a substantial number of small entities.
The purpose of this proposed rule is to
designate APAAN as a list I chemical
under the CSA. No less restrictive
measures (i.e., non-control or control in
list II) would enable the DEA to meet its
statutory obligation under the CSA and
its international obligations of the 1988
Convention. The DEA estimates that this
rule affects three small entities. As
discussed above, the DEA compared the
dollar value of APAAN sales to the cost
of registration. Further, the DEA
assumed that if the cost of registration
is more than the dollar value of APAAN
sales, then each entity would
discontinue the sale of APAAN.
Two entities earned $13 in annual
sales of APAAN while the third entity
earned $1,440 in annual sales of
APAAN. The cost of registration alone
is $1,523 for each entity. Therefore, the
DEA anticipates that each entity will
discontinue the sale of APAAN because
the cost of compliance is greater than
the annual sales. As a result, the annual
economic impact of the rule is $1,467.
Using 1% of annual revenue as the
criteria for significant economic impact,
the DEA estimates that none of the three
small entities will experience a
significant economic impact if the
proposed rule is finalized. The cost of
the rule as a percentage of annual
revenue for the three entities is,
0.00044%, 0.00036%, and 0.038%,
respectively, which is less than 1% of
the entities’ annual income. Therefore,
the proposed rule will not have a
significant effect on a substantial
number of small entities.
Unfunded Mandates Reform Act of 1995
On the basis of information contained
in the ‘‘Regulatory Flexibility Act’’
section above, the DEA has determined
and certifies pursuant to the Unfunded
Mandates Reform Act (UMRA) of 1995,
2 U.S.C. 1501 et seq., that this action
would not result in any Federal
mandate that may result in the
expenditure by State, local, and tribal
governments, in the aggregate, or by the
private sector, of $100,000,000 or more
(adjusted for inflation) in any one year.
Therefore, neither a Small Government
Agency Plan nor any other action is
required under provisions of the UMRA
of 1995.
Paperwork Reduction Act
This action does not impose a new
collection of information requirement
under the Paperwork Reduction Act of
1995. 44 U.S.C. 3501–3521. The DEA
does not anticipate that it will receive
new registration applications for the
purpose of engaging in transactions
involving this chemical. The
transactions in this chemical of which
the DEA is aware are very small, and it
does not appear to the DEA that it
would be economically justifiable
because DEA believes there is no
legitimate market for manufacturing or
engaging in commercial transactions in
this chemical. This action would not
impose recordkeeping or reporting
requirements on State or local
governments, individuals, businesses, or
organizations. An agency may not
conduct or sponsor, and a person is not
required to respond to, a collection of
information unless it displays a
currently valid OMB control number.
List of Subjects 21 CFR Part 1310
Drug traffic control, Exports, Imports,
Reporting and recordkeeping
requirements.
Accordingly, for the reasons set forth
in the preamble, part 1310 of title 21 of
the Code of Federal Regulations is
proposed to be amended as follows:
PART 1310—RECORDS AND
REPORTS OF LISTED CHEMICALS
AND CERTAIN MACHINES
1. The authority citation for part 1310
continues to read as follows:
■
Authority: 21 U.S.C. 802, 827(h), 830,
871(b), 890.
2. Amend § 1310.02 by redesignating
paragraphs (a)(1) through (a)(30) as
paragraphs (a)(2) through (a)(31),
respectively, and adding a new
paragraph (a)(1) in the table ‘‘List I
chemicals’’ to read as follows:
■
§ 1310.02
*
Substances covered.
*
*
(a) * * *
*
*
(1) Alpha-phenylacetoacetonitrile and its salts, optical isomers, and salts of optical isomers (APAAN) ...........................................
*
*
*
VerDate Sep<11>2014
*
*
17:02 Dec 09, 2016
3. Amend § 1310.04 by redesignating
paragraphs (g)(1)(i) through (g)(1)(x) as
■
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Federal Register / Vol. 81, No. 238 / Monday, December 12, 2016 / Proposed Rules
respectively, and adding a new
paragraph (g)(1)(i) to read as follows:
§ 1310.04
Maintenance of records.
*
*
*
*
*
(g) * * *
(1) * * *
(i) Alpha-phenylacetoacetonitrile and
its salts, optical isomers, and salts of
optical isomers (APAAN)
*
*
*
*
*
■ 4. Amend § 1310.09 by adding new
paragraph (n) to read as follows:
§ 1310.09 Temporary exemption from
registration.
*
*
*
*
*
(n)(1) Each person required under
Sections 302 and 1007 of the Act (21
U.S.C. 822, 957) to obtain a registration
to manufacture, distribute, import, or
export regulated alphaphenylacetoacetonitrile (APAAN) and
its salts, optical isomers, and salts of
optical isomers, including regulated
chemical mixtures pursuant to Section
1310.12 of this part, is temporarily
exempted from the registration
requirement, provided that the DEA
receives a properly completed
application for registration or
application for exemption for a
chemical mixture containing alphaphenylacetoacetonitrile (APAAN) and
its salts, optical isomers, and salts of
optical isomers, pursuant to Section
1310.13 of this part on or before (30
days after publication of a Final Rule
implementing regulations regarding
APAAN). The exemption will remain in
effect for each person who has made
such application until the
Administration has approved or denied
that application. This exemption applies
only to registration; all other chemical
control requirements set forth in the Act
and parts 1309, 1310, 1313, and 1316 of
this chapter remain in full force and
effect.
(2) Any person who manufactures,
distributes, imports or exports a
chemical mixture containing alphaphenylacetoacetonitrile (APAAN) and
its salts, optical isomers, and salts of
optical isomers whose application for
exemption is subsequently denied by
the DEA must obtain a registration with
the DEA. A temporary exemption from
the registration requirement will also be
provided for those persons whose
applications for exemption are denied,
provided that the DEA receives a
properly completed application for
registration on or before 30 days
following the date of official DEA
notification that the application for
exemption has been denied. The
temporary exemption for such persons
will remain in effect until the DEA takes
final action on their registration
application.
■ 5. Amend § 1310.12 paragraph (c) by
adding in alphabetical order an entry
‘‘Alpha-phenylacetoacetonitrile, and its
salts, optical isomers, and salts of
optical isomers. (APAAN)’’ in the table
‘‘Table of Concentration Limits’’ to read
as follows:
§ 1310.12
*
Exempt chemical mixtures.
*
*
(c) * * *
*
*
TABLE OF CONCENTRATION LIMITS
DEA chemical
code No.
*
*
*
Alpha-phenylacetoacetonitrile, and its salts, optical isomers,
and salts of optical isomers. (APAAN).
*
*
*
*
*
*
*
*
Dated: December 2, 2016.
Chuck Rosenberg,
Acting Administrator.
[FR Doc. 2016–29523 Filed 12–9–16; 8:45 am]
BILLING CODE 4410–09–P
ENVIRONMENTAL PROTECTION
AGENCY
40 CFR Part 52
srobinson on DSK5SPTVN1PROD with PROPOSALS
[EPA–R09–OAR–2016–0660; FRL–9956–27–
Region 9]
Approval of California Air Plan; Owens
Valley Serious Area Plan for the 1987
24-Hour PM10 Standard
Environmental Protection
Agency (EPA).
ACTION: Proposed rule.
AGENCY:
The Environmental Protection
Agency (EPA) is proposing to approve a
state implementation plan (SIP) revision
submitted by the State of California and
SUMMARY:
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17:02 Dec 09, 2016
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Concentration
*
Not exempt at any concentration.
*
*
Great Basin Unified Air Pollution
Control District (GBUAPCD or
‘‘District’’) to meet Clean Air Act (CAA
or ‘‘Act’’) requirements applicable to the
Owens Valley PM10 nonattainment area
(NA). The Owens Valley PM10 NA is
located in the southern portion of the
Owens Valley in Inyo County,
California. It is classified as a Serious
nonattainment area for the national
ambient air quality standards (NAAQS)
for particulate matter of ten microns or
less (PM10). The submitted SIP revision
is the ‘‘Great Basin Unified Air
Pollution Control District 2016 Owens
Valley Planning Area PM10 State
Implementation Plan’’ (‘‘2016 PM10
Plan’’ or ‘‘Plan’’). The GBUAPCD’s
obligation to submit the 2016 PM10 Plan
was triggered by the EPA’s 2007 finding
that the Owens Valley PM10 NA had
failed to meet its December 31, 2006,
deadline to attain the PM10 NAAQS.
The CAA requires a Serious PM10
nonattainment area that fails to meet its
attainment deadline to submit a plan
providing for attainment of the PM10
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Sfmt 4702
*
*
Chemical mixtures containing
any amount of APAAN are
not exempt.
*
*
NAAQS and for an annual emission
reduction in PM10 of not less than five
percent until attainment of the PM10
NAAQS. The EPA is proposing to
approve the 2016 PM10 Plan as meeting
all relevant statutory and regulatory
requirements.
Any comments on this proposal
must arrive by January 11, 2017.
DATES:
Submit comments,
identified by docket number EPA–R09–
OAR–2016–0660, at https://
www.regualtions.gov, or via email to
Vagenas.Ginger@epa.gov. For comments
submitted at Regulations.gov, follow the
online instructions for submitting
comments. Once submitted, comments
cannot be edited or removed from
Regulations.gov. For either manner of
submission, the EPA may publish any
comment received to its public docket.
Do not submit electronically any
information you consider to be
Confidential Business Information (CBI)
or other information whose disclosure is
restricted by statute. Multimedia
ADDRESSES:
E:\FR\FM\12DEP1.SGM
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Agencies
[Federal Register Volume 81, Number 238 (Monday, December 12, 2016)]
[Proposed Rules]
[Pages 89402-89407]
From the Federal Register Online via the Government Publishing Office [www.gpo.gov]
[FR Doc No: 2016-29523]
=======================================================================
-----------------------------------------------------------------------
DEPARTMENT OF JUSTICE
Drug Enforcement Administration
21 CFR Part 1310
[Docket No. DEA-379]
RIN 1117-ZA04
Designation of Alpha-Phenylacetoacetonitrile (APAAN), a Precursor
Chemical Used in the Illicit Manufacture of Phenylacetone,
Methamphetamine, and Amphetamine, as a List I Chemical
AGENCY: Drug Enforcement Administration, Department of Justice.
ACTION: Notice of proposed rulemaking.
-----------------------------------------------------------------------
SUMMARY: The Drug Enforcement Administration is proposing to designate
the chemical alpha-phenylacetoacetonitrile (APAAN) and its salts,
optical isomers, and salts of optical isomers, as a list I chemical
under the Controlled Substances Act. APAAN is used in clandestine
laboratories to illicitly manufacture the schedule II controlled
substances phenylacetone (also known as phenyl-2-propanone or P2P),
methamphetamine, and amphetamine and is important to the manufacture of
these controlled substances. This action does not propose the
establishment of a threshold for domestic and international
transactions of APAAN. As such, all transactions involving APAAN,
regardless of size, would be regulated. In addition, this action
proposes that chemical mixtures containing APAAN would not be exempt
from regulatory requirements at any concentration. Therefore, all
transactions of chemical mixtures containing any quantity of APAAN
would be regulated pursuant to the Controlled Substances Act.
DATES: Electronic comments must be submitted, and written comments must
be postmarked, on or before January 11, 2017. Commenters should be
aware that the electronic Federal Docket Management System will not
accept comments after 11:59 p.m. Eastern Time on the last day of the
comment period.
ADDRESSES: To ensure proper handling of comments, please reference
``Docket No. DEA-379'' on all correspondence, including any
attachments.
The Drug Enforcement Administration encourages that all comments be
submitted electronically through the Federal eRulemaking Portal, which
provides the ability to type short comments directly into the comment
field on the Web page or to attach a file for lengthier comments.
Please go to https://www.regulations.gov/ and follow the online
instructions at that site for submitting comments. Upon completion of
your submission, you will receive a Comment Tracking Number for your
comment. Please be aware that submitted comments are not
instantaneously available for public view on Regulations.gov. If you
have received a Comment Tracking Number, your comment has been
successfully submitted and there is no need to resubmit the same
comment. Paper comments that duplicate the electronic submission are
not necessary and are discouraged. Should you wish to mail a paper
comment in lieu of an electronic comment, it should be sent via regular
or express mail to: Drug Enforcement Administration, Attn: DEA Federal
Register Representative/ODW, 8701 Morrissette Drive, Springfield,
Virginia 22152.
FOR FURTHER INFORMATION CONTACT: Michael J. Lewis, Office of Diversion
Control, Drug Enforcement Administration; Mailing Address: 8701
Morrissette Drive, Springfield, Virginia 22152; Telephone: (202) 598-
6812.
SUPPLEMENTARY INFORMATION:
Posting of Public Comments
Please note that all comments received are considered part of the
public record. They will, unless reasonable cause is given, be made
available by the Drug Enforcement Administration (DEA) for public
inspection online at https://www.regulations.gov. Such information
includes personal identifying information (such as name, address, etc.)
voluntarily submitted by the commenter. The Freedom of Information Act
(FOIA) applies to all comments received. If you want to
[[Page 89403]]
submit personal identifying information (such as your name, address,
etc.) as part of your comment, but do not want it to be made publicly
available, you must include the phrase ``PERSONAL IDENTIFYING
INFORMATION'' in the first paragraph of your comment. You must also
place all of the personal identifying information you do not want made
publicly available in the first paragraph of your comment and identify
what information you want redacted.
If you want to submit confidential business information as part of
your comment, but do not want it to be made publicly available, you
must include the phrase ``CONFIDENTIAL BUSINESS INFORMATION'' in the
first paragraph of your comment. You must also prominently identify
confidential business information to be redacted within the comment.
Comments containing personal identifying information and
confidential business information identified as directed above will
generally be made publicly available in redacted form. If a comment has
so much confidential business information or personal identifying
information that it cannot be effectively redacted, all or part of that
comment may not be made publicly available. Comments posted to https://www.regulations.gov may include any personal identifying information
(such as name, address, and phone number) included in the text of your
electronic submission that is not identified as directed above as
confidential.
An electronic copy of this proposed rule is available at https://www.regulations.gov for easy reference.
Legal Authority
The DEA implements and enforces titles II and III of the
Comprehensive Drug Abuse Prevention and Control Act of 1970, as
amended. 21 U.S.C. 801-971. Titles II and III are referred to as the
``Controlled Substances Act'' and the ``Controlled Substances Import
and Export Act,'' respectively, and are collectively referred to as the
``Controlled Substances Act'' or the ``CSA'' for the purpose of this
action. The DEA publishes the implementing regulations for these
statutes in title 21 of the Code of Federal Regulations (CFR), chapter
II. The CSA and its implementing regulations are designed to prevent,
detect, and eliminate the diversion of controlled substances and listed
chemicals into the illicit market while providing for the legitimate
medical, scientific, research, and industrial needs of the United
States. Controlled substances have the potential for abuse and
dependence and are controlled to protect the public health and safety.
The CSA gives the Attorney General the authority to specify, by
regulation, chemicals as list I or list II chemicals. 21 U.S.C. 802(34)
and (35). A ``list I chemical'' is a chemical that is used in
manufacturing a controlled substance in violation of title II of the
CSA and is important to the manufacture of the controlled substance. 21
U.S.C. 802(34). A ``list II chemical'' is a chemical (other than a list
I chemical) that is used in manufacturing a controlled substance in
violation of title II of the CSA. 21 U.S.C. 802(35). The current list
of all listed chemicals is published at 21 CFR 1310.02. Pursuant to 28
CFR 0.100(b), the Attorney General has delegated her authority to
designate list I and list II chemicals to the Administrator of the Drug
Enforcement Administration.
In addition, the United States is a Party to the 1988 United
Nations Convention against Illicit Traffic in Narcotic Drugs and
Psychotropic Substances (1988 Convention). When the United States
receives notification that a chemical has been added to Table I or
Table II of the 1988 Convention pursuant to article 12, the United
States is required to take measures it deems appropriate to monitor the
manufacture and distribution of that chemical within the United States
and to prevent its diversion. In addition, the 1988 Convention requires
the United States to take other specified measures related to that
chemical, including measures related to its international trade.
Background
By a letter dated April 9, 2014, the Secretary-General of the
United Nations informed the United States Government that the chemical
alpha-phenylacetoacetonitrile (APAAN) was added to Table I of the 1988
Convention. This letter was prompted by a March 19, 2014, decision at
the 57th Session of the United Nations Commission on Narcotic Drugs
(CND) to add APAAN to Table I. As a Party to the 1988 Convention, the
United States is obligated, pursuant to article 12, to take measures it
deems appropriate to monitor the manufacture and distribution of APAAN
within the United States and to prevent its diversion. Article 12 also
obligates the United States to take other specified measures related to
APAAN, including measures related to its international trade. By
designating APAAN as a list I chemical, the United States will fulfill
its obligations under the 1988 Convention.
APAAN is a primary precursor for the manufacture of phenylacetone
(also known as phenyl-2-propanone (P2P) or benzyl methyl ketone),
methamphetamine, and amphetamine. Throughout the 1970s, methamphetamine
was illicitly produced in the United States, primarily with the
precursor chemical P2P. In response to the illicit use of P2P, the DEA
controlled P2P as a schedule II controlled substance in 1980 pursuant
to the ``immediate precursor'' provisions of the CSA, specifically 21
U.S.C. 811(e). Clandestine laboratory operators responded by developing
a variety of synthetic methods for producing P2P.
Congress and the DEA responded with the implementation of controls
on P2P precursor chemicals such as phenylacetic acid (and its salts and
esters), acetic anhydride, benzyl cyanide, benzaldehyde, and
nitroethane, all of which are controlled as listed chemicals. 21 CFR
1310.02 (a)-(b). However, clandestine laboratory operators soon
adjusted to these controls on P2P (and its precursors). As an
alternative for methamphetamine production, clandestine laboratory
operators used the precursors ephedrine and pseudoephedrine, and as an
alternative for amphetamine production, they used the precursor
phenylpropanolamine.
This led Congress and the DEA to implement stringent controls on
the manufacture, distribution, importation, and exportation of
ephedrine (its salts, optical isomers, and salts of optical isomers),
pseudoephedrine, and phenylpropanolamine (controlled as list I
chemicals), and pharmaceutical products containing these chemicals. The
international community soon took similar measures.
With the growing problem of illicit drug production, the issue of
precursor chemical control has gained global attention. International
efforts to prevent the illicit production of amphetamine-type
stimulants (including amphetamine and methamphetamine), and
international control of precursors, have made significant progress.
International controls on precursors were established under article 12
of the 1988 Convention.\1\ The 1988 Convention established two
categories of controlled illicit drug precursor substances: Table I and
Table II.\2\ Two international entities have played a crucial role in
this effort: The United Nations Commission on Narcotic Drugs (CND)
[[Page 89404]]
and the International Narcotics Control Board.
---------------------------------------------------------------------------
\1\ Dec. 20, 1988, 1582 U.N.T.S. 95.
\2\ Table I and Table II are annexed to the Convention.
---------------------------------------------------------------------------
In response to domestic and international controls on amphetamine
and methamphetamine precursors, clandestine laboratory operators have
continued to explore alternate methods of making these illicit drugs,
including developing techniques to manufacture their own precursors and
diverting other precursors to produce these precursors. This has led
clandestine laboratory operators to utilize the P2P precursor APAAN.
Clandestine laboratory operators currently use APAAN to manufacture
P2P, which they then convert to methamphetamine and amphetamine.
APAAN
APAAN also goes by the names: 1-cyano-1-phenylpropan-2-one; 2-
phenylacetoacetonitrile; 2-acetyl-2-phenylacetonitrile; alpha-acetyl-
benzene acetonitrile; phenyl aceto-acetonitrile; [alpha]-
acetylphenylacetonitrile; 3-oxo-2-phenylbutanenitrile; CAS Number:
4468-48-8; and Identification Number: UN3439.
The DEA has long been aware of APAAN's potential illicit use as a
primary precursor for the production of P2P. The synthesis of P2P from
benzyl cyanide involves the manufacture of APAAN prior to the final
synthesis of P2P. Therefore, benzyl cyanide and APAAN share the same
synthetic pathway in the production of P2P. In the late 1980's the DEA
advocated for the Congressional control of the P2P precursor benzyl
cyanide as a list I chemical.
Due to the lack of industrial uses of APAAN, there has historically
been a lack of available product for potential diversion. In recent
years, however, large international seizures of APAAN have been made,
primarily in Europe, which suggest there is a ready supply of APAAN
from international chemical manufacturers.
While the DEA has encountered one clandestine laboratory in the
United States utilizing this synthetic pathway in recent years, the
DEA's European counterparts have made a large number of APAAN seizures.
For calendar years 2009 through 2014, the European Commission has
documented at least 113 seizures and stop shipments, involving over 80
metric tons of APAAN. Many of these seizures were associated with
seizures of P2P and amphetamine. Many of these APAAN seizures
originated from chemical suppliers based in Asia.
The DEA has determined that APAAN is now readily available from
commercial chemical suppliers and has identified 34 potential suppliers
in China, 6 potential suppliers in the United States, 2 in Russia, and
1 each in Bulgaria, Cameroon, the Czech Republic, France, and Germany.
The DEA is concerned about the ease with which APAAN serves as a
precursor chemical for illicit controlled substance production and with
the international trafficking in this chemical. The international
community echoes this concern. As noted above, the CND has added APAAN
to Table I of the 1988 Convention. Therefore, the DEA is proposing the
designation of APAAN as a list I chemical.
Proposed Designation of APAAN and Its Salts, Optical Isomers, and Salts
of Optical Isomers as a List I Chemical
The CSA, specifically 21 U.S.C. 802(34), and its implementing
regulations at 21 CFR 1310.02(c), provides the Attorney General with
the authority to specify, by regulation, a chemical as a ``list I
chemical'' if the chemical is used in the manufacture of a controlled
substance in violation of the CSA and is important to the manufacture
of these controlled substances. Clandestine laboratory operators are
using APAAN as the precursor material for the illicit manufacture of
P2P, methamphetamine, and amphetamine. These three substances are all
controlled substances under the CSA. APAAN is a primary precursor for
P2P, for subsequent conversion to methamphetamine or amphetamine.
Therefore, APAAN is important to the manufacture of a controlled
substance. This action proposes the designation of APAAN as a list I
chemical because the DEA finds that APAAN is used in the illicit
manufacture of these controlled substances and is important to the
illicit manufacture of these controlled substances.
If finalized, handlers of APAAN would become subject to the
chemical regulatory provisions of the CSA, including 21 CFR parts 1309,
1310, 1313, and 1316. Since even a small amount of APAAN can make a
significant amount of P2P, this action does not propose the
establishment of a threshold for domestic and import transactions of
APAAN in accordance with the provisions of 21 CFR 1310.04(g).
Therefore, the DEA is proposing that all APAAN transactions, regardless
of size, will be regulated transactions as defined in 21 CFR
1300.02(b). As such, if finalized, all APAAN transactions will be
subject to recordkeeping, reporting, import and export controls, and
other CSA chemical regulatory requirements. In addition, each regulated
bulk manufacturer shall submit manufacturing, inventory, and use data
on an annual basis.
Chemical Mixtures of APAAN
This rulemaking also proposes that chemical mixtures containing
APAAN would not be exempt from regulatory requirements at any
concentration unless an application for exemption of a chemical mixture
is submitted by an APAAN manufacturer and the application is reviewed
and accepted and the mixture exempted by the DEA under 21 CFR 1310.13
(Exemption by Application Process). Since even a small amount of APAAN
yields a significant amount of P2P, the DEA believes that regulation of
chemical mixtures containing any amount of APAAN is necessary to
prevent the illicit extraction, isolation, and use of the APAAN.
Therefore, all chemical mixtures containing any quantity of APAAN would
be subject to CSA control, unless the APAAN manufacturer is granted an
exemption by the application process in accordance with 21 CFR 1310.13.
This rule proposes the modification of the ``Table of Concentration
Limits'' in 21 CFR 1310.12(c) to reflect the fact that chemical
mixtures containing any amount of APAAN are subject to CSA chemical
control provisions.
Exemption by Application Process
The DEA has implemented an application process to exempt certain
chemical mixtures from the requirements of the CSA and its implementing
regulations. 21 CFR 1310.13. Manufacturers may submit an application
for exemption for those mixtures that do not qualify for automatic
exemption. Exemption status may be granted if the DEA determines that
the mixture is formulated in such a way that it cannot be easily used
in the illicit production of a controlled substance and that the listed
chemical or chemicals cannot be readily recovered. 21 CFR
1310.13(a)(1)-(2).
Requirements for Handling List I Chemicals
If finalized as proposed, the designation of APAAN as a list I
chemical will subject APAAN handlers (manufacturers, distributors,
importers, and exporters), and proposed handlers, to all of the
regulatory controls and administrative, civil, and criminal actions
applicable to the manufacture, distribution, importing, and exporting
of a list I chemical. Upon publication of a final rule, persons
potentially handling APAAN, including regulated chemical mixtures
containing APAAN, would be
[[Page 89405]]
required to comply with the following list I chemical regulations:
1. Registration. Any person who manufactures, distributes, imports,
or exports APAAN, or proposes to engage in the manufacture,
distribution, importation, or exportation of APAAN, must obtain a
registration pursuant to 21 U.S.C. 822, 823, 957, 958. Regulations
describing registration for list I chemical handlers are set forth in
21 CFR part 1309. Consistent with 21 CFR parts 1309 and 1310, separate
registrations will be required for manufacturing, distribution,
importing, and exporting of APAAN. Different locations operated by a
single entity require separate registration if any location is involved
with the manufacture, distribution, importation, or exportation of
APAAN. Further, a separate registration is required for each principal
place of business at one general physical location where list I
chemicals are manufactured, distributed, imported, or exported by a
person. 21 CFR 1309.23. Any person manufacturing, distributing,
importing, or exporting an APAAN chemical mixture will be subject to
the registration requirement under the CSA as well.
The DEA notes that warehouses are exempt from the requirement of
registration and may lawfully possess list I chemicals, if the
possession of those chemicals is in the usual course of business or
employment. 21 U.S.C. 822(c)(2), 21 U.S.C. 957(b)(1)(B). For purposes
of this exemption, the warehouse must receive the list I chemical from
a DEA registrant and shall only distribute the list I chemical back to
the DEA registrant and registered location from which it was received.
All other activities conducted by a warehouse do not fall under this
exemption; a warehouse that distributes list I chemicals to persons
other than the registrant and registered location from which they were
obtained is conducting distribution activities and is required to
register as such. 21 CFR 1309.23(b)(1).
Upon publication of a final rule, any person manufacturing,
distributing, importing, or exporting APAAN or a chemical mixture
containing APAAN will become subject to the registration requirement
under the CSA. The DEA recognizes, however, that it is not possible for
persons who are subject to the registration requirement to immediately
complete and submit an application for registration and for the DEA to
immediately issue registrations for those activities. Therefore, to
allow continued legitimate commerce in APAAN, the DEA is proposing to
establish in 21 CFR 1310.09 a temporary exemption from the registration
requirement for persons desiring to engage in activities with APAAN,
provided that the DEA receives a properly completed application for
registration on or before 30 days after publication of a final rule
implementing regulations regarding APAAN. The temporary exemption for
such persons will remain in effect until the DEA takes final action on
their application for registration or application for exemption of a
chemical mixture.
The temporary exemption applies solely to the registration
requirement; all other chemical control requirements, including
recordkeeping and reporting, would become effective on the effective
date of the final rule. Therefore, all transactions of APAAN and
chemical mixtures containing APAAN will be regulated while an
application for registration or exemption is pending. This is necessary
because not regulating these transactions could result in increased
diversion of chemicals desirable to drug traffickers.
Additionally, the temporary exemption does not suspend applicable
federal criminal laws relating to APAAN, nor does it supersede State or
local laws or regulations. All handlers of APAAN must comply with
applicable State and local requirements in addition to the CSA
regulatory controls.
2. Records and Reports. Every DEA registrant would be required to
maintain records and reports with respect to APAAN pursuant to 21
U.S.C. 830 and in accordance with 21 CFR part 1310. Pursuant to 21 CFR
1310.04, a record must be made and maintained for two years after the
date of a transaction involving a listed chemical, provided the
transaction is a regulated transaction.
Each regulated bulk manufacturer of a listed chemical will be
required to submit manufacturing, inventory, and use data on an annual
basis. 21 CFR 1310.05(d). Existing standard industry reports containing
the required information will be acceptable, provided the information
is separate or readily retrievable from the report.
21 CFR 1310.05(a) requires that each regulated person shall report
to the DEA any regulated transaction involving an extraordinary
quantity of a listed chemical, an uncommon method of payment or
delivery, or any other circumstance that the regulated person believes
may indicate that the listed chemical will be used in violation of the
CSA and its corresponding regulations. Regulated persons are also
required to report any proposed regulated transaction with a person
whose description or other identifying characteristics the
Administration has previously furnished to the regulated person; any
unusual or excessive loss or disappearance of a listed chemical under
the control of the regulated person; any in-transit loss in which the
regulated person is the supplier; and any domestic regulated
transaction in a tableting or encapsulating machine.
3. Importation and Exportation. All importation and exportation of
APAAN would need to be in compliance with 21 U.S.C. 957, 958, and 971
and in accordance with 21 CFR part 1313.
4. Security. All applicants and registrants would be required to
provide effective controls against theft and diversion in accordance
with 21 CFR 1309.71-1309.73.
5. Administrative Inspection. Places, including factories,
warehouses, or other establishments and conveyances, where registrants
or other regulated persons may lawfully hold, manufacture, distribute,
or otherwise dispose of a list I chemical or where records relating to
those activities are maintained, are controlled premises as defined in
21 U.S.C. 880(a) and 21 CFR 1316.02(c). The CSA (21 U.S.C. 880) allows
for administrative inspections of these controlled premises as provided
in 21 CFR part 1316, subpart A.
6. Liability. Any activity involving APAAN not authorized by, or in
violation of, the CSA, would be unlawful, and may subject the person to
administrative, civil, and/or criminal action.
Regulatory Analyses
Executive Orders 12866 and 13563
This notice of proposed rulemaking, which proposes the designation
of APAAN as a list I chemical, has been developed in accordance with
the principles of Executive Orders 12866 and 13563. The DEA followed
the principles of these Executive Orders, even though it has been
determined that this action is not a significant regulatory action.
To determine whether this action is a significant regulatory
action, the DEA utilized a least cost option analysis. At the outset,
the DEA determined that the primary costs of this rule would come from
complying with the registration, recordkeeping, reporting, and export
and import requirements set forth in the CSA. Therefore, under the
least cost option, an entity would choose to discontinue the sale of
APAAN if proceeds from the sale are less than the cost of complying
with the rule.
The DEA has not identified any industrial uses of APAAN by domestic
entities and its potential usage appears to be limited to research.
Based on
[[Page 89406]]
independent research following a 2013 United Nations Questionnaire/
Survey on APAAN, the DEA identified three entities that have each
imported APAAN. Two of the three entities had average annual sales of
APAAN totaling $13 during the analysis period. The third entity had
average annual sales of APAAN totaling $1,440 during the same period.
Other chemical distributors list APAAN in their chemical catalogs.
However, these entities do not manufacture APAAN, instead opting to
purchase APAAN from international sources to fill special orders. These
entities do not stock APAAN in inventory and the vast majority had no
previous sales of APAAN.
The registration fee to import a list I chemical is $1,523 per
year. Based on the least cost option, these three entities would choose
to discontinue the sale of APAAN because complying with the rule is
more costly. Thus, the annual economic impact of the rule is $1,467
(total annual sales of APAAN from the three affected entities).
Therefore, this is evidence that this proposed rule would not have an
annual effect on the economy of $100 million or more and is not a
significant regulatory action.
Executive Order 12988
This proposed regulation meets the applicable standards set forth
in sections 3(a) and 3(b)(2) of Executive Order 12988 to eliminate
drafting errors and ambiguity, minimize litigation, provide a clear
legal standard for affected conduct, and promote simplification and
burden reduction.
Executive Order 13132
This proposed rulemaking does not have federalism implications
warranting the application of Executive Order 13132. The proposed rule
does not have substantial direct effects on the States, on the
relationship between the national government and the States, or the
distribution of power and responsibilities among the various levels of
government.
Executive Order 13175
This proposed rule does not have tribal implications warranting the
application of Executive Order 13175. It does not have substantial
direct effects on one or more Indian tribes, on the relationship
between the Federal Government and Indian tribes, or on the
distribution of power and responsibilities between the Federal
Government and Indian tribes.
Regulatory Flexibility Act
The Acting Administrator, in accordance with the Regulatory
Flexibility Act (RFA), 5 U.S.C. 601-612, has reviewed this proposed
rule and by approving it certifies that it will not have a significant
economic impact on a substantial number of small entities. The purpose
of this proposed rule is to designate APAAN as a list I chemical under
the CSA. No less restrictive measures (i.e., non-control or control in
list II) would enable the DEA to meet its statutory obligation under
the CSA and its international obligations of the 1988 Convention. The
DEA estimates that this rule affects three small entities. As discussed
above, the DEA compared the dollar value of APAAN sales to the cost of
registration. Further, the DEA assumed that if the cost of registration
is more than the dollar value of APAAN sales, then each entity would
discontinue the sale of APAAN.
Two entities earned $13 in annual sales of APAAN while the third
entity earned $1,440 in annual sales of APAAN. The cost of registration
alone is $1,523 for each entity. Therefore, the DEA anticipates that
each entity will discontinue the sale of APAAN because the cost of
compliance is greater than the annual sales. As a result, the annual
economic impact of the rule is $1,467.
Using 1% of annual revenue as the criteria for significant economic
impact, the DEA estimates that none of the three small entities will
experience a significant economic impact if the proposed rule is
finalized. The cost of the rule as a percentage of annual revenue for
the three entities is, 0.00044%, 0.00036%, and 0.038%, respectively,
which is less than 1% of the entities' annual income. Therefore, the
proposed rule will not have a significant effect on a substantial
number of small entities.
Unfunded Mandates Reform Act of 1995
On the basis of information contained in the ``Regulatory
Flexibility Act'' section above, the DEA has determined and certifies
pursuant to the Unfunded Mandates Reform Act (UMRA) of 1995, 2 U.S.C.
1501 et seq., that this action would not result in any Federal mandate
that may result in the expenditure by State, local, and tribal
governments, in the aggregate, or by the private sector, of
$100,000,000 or more (adjusted for inflation) in any one year.
Therefore, neither a Small Government Agency Plan nor any other action
is required under provisions of the UMRA of 1995.
Paperwork Reduction Act
This action does not impose a new collection of information
requirement under the Paperwork Reduction Act of 1995. 44 U.S.C. 3501-
3521. The DEA does not anticipate that it will receive new registration
applications for the purpose of engaging in transactions involving this
chemical. The transactions in this chemical of which the DEA is aware
are very small, and it does not appear to the DEA that it would be
economically justifiable because DEA believes there is no legitimate
market for manufacturing or engaging in commercial transactions in this
chemical. This action would not impose recordkeeping or reporting
requirements on State or local governments, individuals, businesses, or
organizations. An agency may not conduct or sponsor, and a person is
not required to respond to, a collection of information unless it
displays a currently valid OMB control number.
List of Subjects 21 CFR Part 1310
Drug traffic control, Exports, Imports, Reporting and recordkeeping
requirements.
Accordingly, for the reasons set forth in the preamble, part 1310
of title 21 of the Code of Federal Regulations is proposed to be
amended as follows:
PART 1310--RECORDS AND REPORTS OF LISTED CHEMICALS AND CERTAIN
MACHINES
0
1. The authority citation for part 1310 continues to read as follows:
Authority: 21 U.S.C. 802, 827(h), 830, 871(b), 890.
0
2. Amend Sec. 1310.02 by redesignating paragraphs (a)(1) through
(a)(30) as paragraphs (a)(2) through (a)(31), respectively, and adding
a new paragraph (a)(1) in the table ``List I chemicals'' to read as
follows:
Sec. 1310.02 Substances covered.
* * * * *
(a) * * *
------------------------------------------------------------------------
------------------------------------------------------------------------
(1) Alpha-phenylacetoacetonitrile and its salts, optical 8512
isomers, and salts of optical isomers (APAAN)..........
------------------------------------------------------------------------
* * * * *
0
3. Amend Sec. 1310.04 by redesignating paragraphs (g)(1)(i) through
(g)(1)(x) as paragraphs (g)(1)(ii) through (g)(1)(xi),
[[Page 89407]]
respectively, and adding a new paragraph (g)(1)(i) to read as follows:
Sec. 1310.04 Maintenance of records.
* * * * *
(g) * * *
(1) * * *
(i) Alpha-phenylacetoacetonitrile and its salts, optical isomers,
and salts of optical isomers (APAAN)
* * * * *
0
4. Amend Sec. 1310.09 by adding new paragraph (n) to read as follows:
Sec. 1310.09 Temporary exemption from registration.
* * * * *
(n)(1) Each person required under Sections 302 and 1007 of the Act
(21 U.S.C. 822, 957) to obtain a registration to manufacture,
distribute, import, or export regulated alpha-phenylacetoacetonitrile
(APAAN) and its salts, optical isomers, and salts of optical isomers,
including regulated chemical mixtures pursuant to Section 1310.12 of
this part, is temporarily exempted from the registration requirement,
provided that the DEA receives a properly completed application for
registration or application for exemption for a chemical mixture
containing alpha-phenylacetoacetonitrile (APAAN) and its salts, optical
isomers, and salts of optical isomers, pursuant to Section 1310.13 of
this part on or before (30 days after publication of a Final Rule
implementing regulations regarding APAAN). The exemption will remain in
effect for each person who has made such application until the
Administration has approved or denied that application. This exemption
applies only to registration; all other chemical control requirements
set forth in the Act and parts 1309, 1310, 1313, and 1316 of this
chapter remain in full force and effect.
(2) Any person who manufactures, distributes, imports or exports a
chemical mixture containing alpha-phenylacetoacetonitrile (APAAN) and
its salts, optical isomers, and salts of optical isomers whose
application for exemption is subsequently denied by the DEA must obtain
a registration with the DEA. A temporary exemption from the
registration requirement will also be provided for those persons whose
applications for exemption are denied, provided that the DEA receives a
properly completed application for registration on or before 30 days
following the date of official DEA notification that the application
for exemption has been denied. The temporary exemption for such persons
will remain in effect until the DEA takes final action on their
registration application.
0
5. Amend Sec. 1310.12 paragraph (c) by adding in alphabetical order an
entry ``Alpha-phenylacetoacetonitrile, and its salts, optical isomers,
and salts of optical isomers. (APAAN)'' in the table ``Table of
Concentration Limits'' to read as follows:
Sec. 1310.12 Exempt chemical mixtures.
* * * * *
(c) * * *
Table of Concentration Limits
----------------------------------------------------------------------------------------------------------------
DEA chemical
code No. Concentration Special conditions
----------------------------------------------------------------------------------------------------------------
* * * * * * *
Alpha-phenylacetoacetonitrile, and its 8512 Not exempt at any Chemical mixtures
salts, optical isomers, and salts of concentration. containing any amount of
optical isomers. (APAAN). APAAN are not exempt.
* * * * * * *
----------------------------------------------------------------------------------------------------------------
* * * * *
Dated: December 2, 2016.
Chuck Rosenberg,
Acting Administrator.
[FR Doc. 2016-29523 Filed 12-9-16; 8:45 am]
BILLING CODE 4410-09-P