* *! i . i ? ,-l-__*-l__-- -.-....- ITniWtl St.ates Gtwt~ral Acxv~urlt.ing Of’f‘iw ___ Fact, Sheet for t,he Chairman, 3 ’ GAO Subcommittee on Legislation and National Security, Committee on Government; Operations, House of Representatives May I WO DEFENSE INVENTORY Production, Distribution, and Storage of C-4 Explosive 141526 (;hO/NSIAD-!)()-I :S!)FS - Uuited States General Accounting Office Washington, D.C. 20648 National Security and International Affairs Division B-238708 May 7,199O The Honorable John Conyers, Jr. Chairman, Subcommittee on Legislation and National Security Committee on Government Operations House of Representatives Dear Mr. Chairman: In response to your August 25, 1989, request, we are providing informa- tion on your specific questions regarding C-4 explosive (see app. I). You expressed particular concern about C-4 explosive due to its high demand by paramilitary groups and other illicit organizations. The object of this fact sheet is to describe the production, distribution, and storage of C-4 explosives. In a subsequent report, we will address your concerns about the military departments’ inventory controls over such sensitive mate- rial and the extent of reforms undertaken to safeguard those inventories. We obtained information about C-4 explosives at the U.S. Army Arma- ment, Munitions, and Chemical Command headquarters. We also con- tacted key officials involved in the management of C-4 in the Navy, Air Force, and Defense Logistics Agency. We conducted our review from September 1989 to January 1990 in accordance with generally accepted government auditing standards. As arranged with your office, unless you publicly announce its contents earlier, we plan no further distribution of this fact sheet until 30 days from its issue date. At that time, we will send copies to interested com- mittees and other congressional members; the Secretaries of Defense, the Army, Navy, and Air Force; the Director, Defense Logistics Agency; and the Director, Office of Management and Budget. We will also make cop- ies available to other parties upon request. Page 1 GAO/NSIAD-99.139FS Defense Inventory B-238708 If you have any additional questions, please contact me on 275-8412. GAO staff members who made major contributions to this report are listed in appendix II. Sincerely yours, Donna M. Heivilin Director, Logistics Issues J Page 2 GAO/NSIAD-90-139FS Defense Inventory J Page 3 GAO/NSIAD-90-139FS Defense Inventory Aboendix I .’ Answers to Questions Regarding C-4 Explosive. 1. What is C-4? Composition C-4 is a mixture containing Research Development Explo- sive (RDX)' (91 percent) and a non-explosive plasticizer (9 percent), It is dirty white to light brown in color. C-4 is a semiplastic, putty-like mate- rial. It can be molded over a wide range of temperatures (-700 F to 1700 F) and produces a cutting action when detonated. C-4’s velocity of detonation, the rate at which an explosive changes to a gaseous form, is 26,400 feet per second. Detonation velocities for some other explosive are trinitrotolyene (TNT) (22,600 feet per second); nitro- glycerin (26,200 feet per second); and pure RDX (27,400 feet per second). According to an Army field manual, C-4 is 1.34 times as effective as the same weight of TNT. Table I. 1 shows the following munitions items using C-4 as a component: Table 1.1: Munitions Items With C-4 a8 a Component Pounds of C-4 used Items in each item C-4 Bulk ComDosition. Class 2 60.00 (Per.. box) C-4 Bulk ComDosition, Class 3 60.00 (per box) Projected Charge Ml 57, Center Section 5.00 Charge Assembly, Demolition MK135 20.00 Charae Assemblv. Demolition MK138 20.00 Charge Assembly, Demolition M37 20.00 Charge Assembly, Demolition Ml83 20.00 Charge, Demolition Block M5Al 2.50 Charae, Demolition Block C-4 Ml 12 1.25 Charae, Demolition MK20 2.00 Charge, Demolition Flex Linear 1,750.oo Demolition Line Charge M58 (MICLIC) 1,900.00 Demolition Kit. Proiected Charae Ml73 1500.00 Demolition Line Charge M59 (MICLIC) 1,900.00 Mine, AP M18Al (Claymore) 1.50 Composition C-4 in bulk form is not considered an end item. Thus, the above list shows 13 items or components that use C-4 as a component. ’ RDX (the chemical name is cyclotrimethylenetrinitramine) is a white solid manufactured by the nitration of hexamethylenetetramlne. RDX was first prepared in 1899, but its explosive properties were not discovered until 1920. It was used extensively in World War II as an explosive filler in ammunition. Page 4 GAO/NSIADM-139F’S Defense Inventory Appendix I ANlwert3 to Questions Ibgarding C-4 Explosive 2. Who makes C-4 and is the United States the only producer? The current producers of C-4 are Holston Army Ammunition Plant in Kingsport, Tennessee, and Expro Chemical Products Inc. of Canada. In addition, the U.S. Army Armament, Munitions, and Chemical Command (AMCCOM) identified’the Lone Star, Newport, Sunflower, and Louisiana Army Ammunition Plants as C-4 producers for mobilization. 3. Does C-4 have a legitimate civilian use? Civilians may use C-4 as an initiator for other explosives or in underwa- ter seismic charges. RDX, the explosive component of C-4, is also used in blasting caps and in other commercial explosives. 4. Is C-4 legally available to civilians? C-4 is not available for purchase from the Holston Army Ammunition Plant by non-military users. The Defense Reutilization Marketing Office sells C-4 determined to be unusable by the military to non-military users. The Reutilization Marketing Office allows only those persons who have valid end-use permits and are licensed by the Bureau of Alcohol, Tobacco and Firearms to bid on surplus explosives. These sales are con- ducted through competitive bids. Table I.2 shows the bidders the Reu- tilization Marketing Office sold C-4 to from February 1986 through September 1987.2 Table 1.2 Non-Mllltary Purcharers of C-4 Pounds of Buyer composition C-4 sold Demex International Ltd. 12,013 Hi Tech Inc. 4,286 Thunderbird Cartridge Co. 1,472 Total 17,771 The U.S. Forest Service, the U. S. Department of State, and the US Bureau of Mines have ordered C-4 in the past. 6. Who may legitimately purchase C-4 and under what kinds of restrictions? 2Accorcling to the Defense Logistics Agency, its Reutilization Marketing Office did not sell any C-4 in fiscal years 1988 and 1989. Page 5 GAO/NSIAD-SO-139PS Defense Inventory Appendix I Answexu to Qneetions Regarding C-4 Explosive The Defense Reutilization Marketing Office allows only those persons who have valid end-use permits and are licensed by the Bureau of Alco- hol, Tobacco and Firearms to bid on surplus explosives. 6. What U.S. agencies control the (a) production, (b) storage, (c) dis- tribution, (d) use, and (e) disposal of C-4? The AMCCOM directorates and Army organizations that have these responsibilities with respect to C-4 and ammunition items that use C-4 at the wholesale3 level are shown in table 1.3. Table 1.3: Organizations With Responsibility for C-4 Production AMCCOM Production Directorate Dlatrlbutlon AMCCOM Defense Ammunition Directorate and AMCCOM Transportation Directorate Storage AMCCOM Defense Ammunition Directorate and Depot Systems Command Various end users control use at the retail level. Specifically, the Army major commands control use for the Army. The other services control their own use. Disposltlon AMCCOM Production Directorate, AMCCOM Defense Ammunition Directorate, and the Defense Reutilization Marketing Office are resoonsible for disbosina unserviceable C-4. 7. What is the shelf life of C-4? According to AMCCOM officials, if C-4 is properly stored and kept from extreme heat, its shelf life is considered to be indefinite. 8. What parts of the control cycle seem most vulnerable? According to AhKXOM officials, C-4 explosive and other sensitive materi- als are most vulnerable to pilferage or loss at the retail level where it is used for training. Maintaining inventory controls at the retail level is difficult. At the user level, C-4 is broken down into smaller quantities (such as individual demolition blocks), thus making it easier to steal. According to the Director of the Defense Ammunition Directorate, there is much better control over inventories at the wholesale level. To further substantiate their position, the Ammunition Directorate officials certi- fied in writing that they have made no inventory adjustments involving 3The wholesale system is comprised of the inventory control points, which determine inventory requirements and procure the items; the distribution depots, which receive, store, and issue stock to retail activities; and factories. The retail system is comprised of numerous supply support activities at bases and installations throughout the world. Page 6 GA0/NSIA.D90439FS Defexwe Inventory Appendix I Answers to Questions Regarding CL4 Explosive items containing C-4 over the past 2 years at any wholesale location storing this material. 9. Can C-4 be homemade? According to AMCCOM officials, C-4 would be hard to make at home because RDX (the explosive component) is difficult to obtain. Production of RDX is difficult, expensive, and requires advanced production techniques. 10. Is the production process dangerous? AMCCOM officials do not consider the production process to be particu- larly dangerous. In over 40 years of operation, the Holston Army Ammunition Plant (the manufacturer of C-4) has had only one fatality. C-4 does not require special handling beyond that needed in explosives manufacturing or military use of explosives. According to an AMCCOM document, C-4 is manufactured by putting wet RDX into a stainless steel mixing kettle and then adding the plastic binder.