Source: https://www.scribd.com/doc/113686472/40/Multiple-Rifle-Sales-Report-Proposal183
Timestamp: 2016-02-14 20:37:26
Document Index: 117067719

Matched Legal Cases: ['§516', '§923', '§478', '§923', '§923', '§926', '§926', '§926', '§923', '§922', 'art 1', 'art 1']

Multiple Rifle Sales Report Proposal183 for CRS Gun Control legislation - Nov. 14, 2012
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collection” in the Federal Register,184
Budget (OMB) review and clear a proposed information collection initiative by January 5, 2011,
on an emergency basis under the Paperwork Reduction Act of 1995.185
While ATF was not
granted emergency approval, OMB eventually approved this initiative on July 11, 2011. While
opponents responded quickly and passed a provision to block ATF’s implementation of this
initiative, the blocking provision was not included in ATF’s enacted FY2012 appropriation and
ATF is currently collecting multiple rifle sales reports in Southwest Border states.
For FY2004 and every fiscal year thereafter, Congress has required ATF to include the following disclaimers in any
published firearms trace reports: (a) Tracing studies conducted by the Bureau of Alcohol, Tobacco, Firearms, and
Explosives are released without adequate disclaimers regarding the limitations of the data; (b) The Bureau of Alcohol,
Tobacco, Firearms, and Explosives shall include in all such data releases, language similar to the following that would
make clear that trace data cannot be used to draw broad conclusions about firearms-related crime: (1) Firearm traces are
designed to assist law enforcement authorities in conducting investigations by tracking the sale and possession of
specific firearms. Law enforcement agencies may request firearms traces for any reason, and those reasons are not
necessarily reported to the Federal Government. Not all firearms used in crime are traced and not all firearms traced are
used in crime. (2) Firearms selected for tracing are not chosen for purposes of determining which types, makes or
models of firearms are used for illicit purposes. The firearms selected do not constitute a random sample and should not
be considered representative of the larger universe of all firearms used by criminals, or any subset of that universe.
Firearms are normally traced to the first retail seller, and sources reported for firearms traced do not necessarily
represent the sources or methods by which firearms in general are acquired for use in crime; See §516 of the FY2012
Commerce, Justice, Science, and Related Agencies (CJS) Appropriations Act, which was enacted as part of the
Consolidated and Further Appropriations Act, 2012 (P.L. 112-55).
U.S. Government Accountability Office, Firearms Trafficking: U.S. Efforts to Combat Arms Trafficking to Mexico
Face Planning and Coordination Challenges, GAO-09-709, June 2009, p. 59.
CRS Legislative Attorneys. Questions on case law related to demand letters should be referred to Ms. Chu.
Under the initiative, ATF proposed to require federal firearms licensees (FFLs) to report to ATF
whenever they make multiple sales or other dispositions of more than one rifle within five
consecutive business days to an unlicensed person. Such reporting was to be limited to firearms
that are (1) semiautomatic, (2) chambered for ammunition of greater than .22 caliber, and (3)
capable of accepting a detachable magazine. While details underlying this initiative were not fully
revealed in the Federal Register, on December 20, 2010, acting ATF Director Kenneth Melson
later clarified that the proposed multiple rifle sales reporting requirement would be (1) limited to
FFLs operating in Southwest border states (Texas, New Mexico, Arizona, and California) and (2)
confined initially to a one-year pilot project.186
On February 4, 2011, OMB informed ATF that it would not grant the emergency approval.187
Nevertheless, the notice’s 60-day comment period ran through February 16, 2011. ATF received
12,680 comments, of which ATF estimated that 8,928 comments (70%) were in support of the
program and 3,752 (30%) were opposed.188
Following DOJ and ATF consideration the initial
round of comments, a subsequent 30-day comment period was invoked on April 29, 2010, during
an additional 18,800 pages of comments were considered.189
On July 11, 2011, OMB approved
the information collection initiative for a three-year period (ending July 31, 2014).190
recommendation made by the DOJ OIG in November 2010.191
shotguns) capable of accepting detachable ammunition feeding devices.192
reporting requirement.193
In response to the OIG’s recommendation, however, then Acting ATF
information regarding multiple sales of long guns.”194
multiple sales of certain long guns from FFLs. Additional documentation posted on the OMB
website suggested that ATF was proposing the information collection under its authority to issue
These data were provided to CRS by ATF on July 9, 2012.
Department of Justice, Bureau of Alcohol, Tobacco, Firearms and Explosives, “Agency Information Collection
Activities; Proposed Collection Comments Requested: Report of Multiple Sale or Other Disposition of Certain Rifles,”
Office of Management and Budget, Office of Information and Regulatory Affairs, Reviews Completed in the Last
30 Days, DOJ-ATF, Report of Multiple Sale or Other Disposition of Certain Semi-Automatic Rifles, OMB Control
Number: 1140-0100, http://www.reginfo.gov/public/do/PRAMain;jsessionid=
9f8e89cb30d6399089b4c8ac4da993b6c0e60ddbeff2.e34ObxiKbN0Sci0SbhaSa3aLchr0n6jAmljGr5XDqQLvpAe.
“demand letters.”195
Since the enactment of the Gun Control Act (GCA) in 1968, the ATF and its
predecessor agencies at the Department of the Treasury196
have had the authority to issue
“demand letters” to FFLs in order to obtain information from the records that FFLs are required
by law to maintain at their places of business.197
Such letters have been primarily used to
investigate and bring non-compliant FFLs into line and to expedite the acquisition of trace data.198
monthly basis thereafter until told otherwise.199
held that 18 U.S.C. Section 926(a), which prohibits the creation of a national registry of firearms,
issuing the letter to the 0.1% of FFLs nationwide.200
the person to whom the firearm was transferred.201
Ninth Circuits generally held that Section 926(a) was not violated202
and that the appropriations
rider that prohibits ATF from spending money in connection with consolidating or centralizing
§923(g)(5).
enacted in 1968. See Furnishing Transaction Information, 27 C.F.R. §478.126, issued 33 Federal Register 18555,
information as the [Attorney General] may specify.” See 18 U.S.C. §923(g)(5)(A).
can never be used to establish any centralized or regional registration about §923(g)(5)(A) [in violation of §926(a)]”
Statement of Senator Orrin Hatch, 131 Congressional Record S9129 (July 9, 1985).
The Fourth Circuit in Blaustein & Reich noted that §926(a) has no bearing on the regulation that authorizes the use
and the regulation on demand letters dates back to 1968. Furthermore, it stated that §926(a) has no bearing on
§923(g)(5)(A) because “the former provision pertains only to ‘rule[s]’ and ‘regulation[s]’ and the latter is a statute, not
a rule or regulation” (modification in the original). Blaustein & Reich, 365 F.3d at 288, 290.
records was also not violated because a demand letter sent to less than 1% of all FFLs for a
portion of record information does not constitute consolidating or centralizing record
information.203
Obama voicing strong opposition to the proposed multiple sales report proposal.204
authority for a multiple rifles sales reporting requirement.205
On February 18, 2011, the House
adopted an amendment by a roll call vote of 277-149 (Roll no. 115) offered by Representatives
Dan Boren and Denny Rehberg to the Full-Year Continuing Appropriations Act, 2011 (H.R. 1)
Following OMB’s approval of this information collection initiative, Representative Rehberg
successfully amended the FY2012 Commerce-Justice-Science (CJS) appropriations bill (H.R.
2596) in full committee markup with language that would have prohibited ATF from
implementing it by a vote of 25 to 16 on July 12, 2011. Meanwhile, the Senate folded its FY2012
CJS appropriations bill (S. 1572) into a minibus appropriations bill (H.R. 2112). Senator Dean
Heller offered an amendment (S.Amdt. 843) to H.R. 2112 that would have also blocked
implementation of the reporting requirement, but the Senate did not vote on the Heller
amendment. Language reflecting the Rehberg amendment was not included in the House- and
Senate-passed conference version of the Consolidated and Further Continuing Appropriations
Act, 2012 (H.R. 2112). Hence, it was not included into the bill that was signed into law (P.L. 112-
55) by the President on November 18, 2011. According to ATF, from August 14, 2011, through
October 6, 2011, it collected 502 multiple rifle sales reports involving 1,276 firearms from FFLs
in Southwest Border states.206
Congressional Documents and Publications, “Rehberg Leads Bipartisan Letter to ATF Questioning New Firearm
Dealer Regulations,” Representative Denny Rehberg (R-MT) News Release, December 23, 2010.
These statistics are available at http://www.atf.gov/statistics/.
In addition, complaints were filed in federal district courts challenging ATF’s ability to collect
such information under its demand letter authority (18 U.S.C. §922(g)(5)(A)).207
National Shooting Sports Foundation, Inc. v. Jones, the United States District Court for the
District of Columbia (DC District Court) held that it was within ATF’s demand letter authority to
collect information from FFLs on the multiple sales of rifles.208
The DC District Court found that
ATF’s demand letter to FFLs on Southwest border was still limited in scope, even though it was
“somewhat broader” than past demand letters that have been upheld by the federal courts.209
Nevertheless, opponents have renewed their efforts to end the multiple rifle sales reporting
requirement during the FY2013 appropriations cycle. On April 26, 2012, Representative Rehberg
successfully offered an amendment during full committee markup of the CJS appropriations bill
(H.R. 5326) with language that would prohibit ATF from collecting multiple long gun sales
reports. Representative Justin Amash and Senator Jon Tester have introduced similar proposals
(H.R. 3814/S. 570).
According to ATF, in the first nine months of the initiative, ATF has referred over 115 defendants
to the U.S. Attorneys for federal prosecution in 29 criminal cases in which leads were generated
from multiple rifle sales reports.210
As part of these cases, ATF has taken about 168 firearms into
evidence. As of May 22, 2012, approximately 1,045 FFLs had submitted 3,500 multiple rifle sales
reports, encompassing around 8,200 firearms.211
ATF estimates that the time burden on each FFL
was about one hour, seven minutes, costing an estimated $12 per year/per FFL.212
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