LEOPA also contains an exemption provision applicable to ammunition which otherwise falls within the definition of armor piercing, but which the Attorney General determines to be “primarily intended to be used for sporting purposes.” 18 U.S.C. 921(a)(17)(C). LEOPA did not further define the terms “primarily intended” or “sporting purposes.” As noted, the Attorney General has delegated the authority to make “sporting purposes” determinations to the Director.
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To facilitate the exercise of that authority ATF promulgated 27 CFR 478.148. This section provides that “a person who desires to obtain an exemption under this section for [armor piercing ammunition] which is primarily intended for sporting purposes . . . shall submit a written request to the [ATF] Director.” 27 CFR 478.148.
Prior to the passage of LEOPA, the GCA already contained other provisions that relied upon “sporting purpose” language as a basis for exempting otherwise applicable restrictions on firearms.2 In administering these provisions of the GCA, ATF has consistently interpreted “sporting purposes” to include the traditional sports of hunting, competitive target shooting, and skeet and trap shooting.3 Although those activities constituting “sporting purposes” are well established, the application of that term under 921(a)(17)(C) is unique. As stated above, the GCA requires that the Attorney General determine that the ammunition is “primarily intended” to be used for sporting purposes in order for ammunition that is otherwise defined as armor piercing to qualify for the exemption.
Between 1986 and 2011, ATF received few exemption requests for armor piercing ammunition. In 1986, ATF exempted 5.56 mm (.223) SS109 and M855 “green tip” ammunition containing a steel core. Similarly, in 1992, ATF exempted .30-06 M2AP cartridges. Since 2011, however, ATF has received approximately 30 exemption requests for armor piercing ammunition. Several developments since 1992 have spurred the influx of exemption requests.