Control of explosives precursors in Northern Ireland

Overview

This guidance will apply from 08 June 2026, when the Control of Explosives Precursors etc. (Amendment) Regulations (Northern Ireland) 2026, come into force, amending the Control of Explosives Precursors etc. Regulations (Northern Ireland) 2014.

This legislation, which only applies in Northern Ireland:

• maintains the existing explosives precursors controls that have been in place in Northern Ireland since the 1970s; 
• ensures that Northern Ireland’s explosives precursors controls are at a similar level to those in Great Britain; and
• ensures that Northern Ireland’s explosives precursors controls comply with Regulation (EU) 2019/1148 on the marketing and use of explosives precursors (the ‘Precursors Regulation’). 

While the substances being controlled have legitimate uses, it is important that we protect against their misuse, while still allowing legitimate use. We aim to do this by:

1. Restricting the acquisition, importation, possession or use of certain substances at certain concentrations;
2. Requiring users to have a licence before they can deal with certain substances at certain concentrations; 
3. Requiring economic operators to inform their customers, staff and the supply chain about the restrictions on explosive precursors, and verify that prospective customers are entitled to acquire such a restricted precursor;
4. Requiring any suspicious transactions, and significant disappearances and thefts to be reported within 24 hours to the appropriate authorities.

This legislation and guidance only applies in Northern Ireland. However if you are a member of the general public receiving explosives precursors from Northern Ireland subject to licensing in Great Britain, you will need to show the supplier your Home Office issued licence. You can find more information on the controls of explosive precursors in Great Britain here.

Substances

Controlled explosives precursors in Northern Ireland fall into two Tiers. These Tiers determine the restrictions and licensing available for each substance, and the obligations on licence holders and suppliers. More detail on these specific requirements can be found below. 

Tier 1

The following substances are Tier 1 substances, unless the exception applies:

Substance	Exception
Ammonium nitrate (CAS RN 6484-52-2)	A mixture which contains - (a) not more than 27.65% by weight of nitrogen in relation to ammonium nitrate; and (b) not more than 0.4% by weight of combustible material.
Calcium ammonium nitrate (CAS RN 15245-12-2)	A mixture which contains - (a) not more than 27.65% by weight of nitrogen in relation to ammonium nitrate; and (b) not more than 0.4% by weight of combustible material.
Sodium chlorate (CAS RN 7775-09-9)	A mixture which contains - (a) 13% or more by weight of water; (b) 30% or more by weight of calcium chloride dehydrate; and (c) an inorganic anti-segregation agent which - (i) prevents the separation of liquid and solid phases under the normal conditions of transport, storage and handling, and (ii) is not capable of chemical reaction with sodium chlorate.
Potassium nitrate (CAS RN 7757-79-1)	A mixture which - (a) has been manufactured for the purpose of commercial supply, and (b) contains not more than 5% by weight of (i) potassium nitrate, or (ii) potassium nitrate in combination with sodium nitrate.
Sodium nitrate (CAS RN 7631-99-4)	A mixture which - (a) has been manufactured for the purpose of commercial supply, and (b) contains not more than 5% by weight of - (i) sodium nitrate, or (ii) sodium nitrate in combination with potassium nitrate.

Tier 2

The following substances are Tier 2 substances, at concentrations above the relevant limit value:

Substance	Limit Value
Hexamine (CAS RN 100-97-0)	0% - hexamine is Tier 2 at all concentrations
Hydrochloric acid (CAS RN 7647-01-0)	10% w/w
Phosphoric acid (CAS RN 7664-38-2)	30% w/w
Nitric acid (CAS RN 7697-37-2)	3% w/w
Hydrogen peroxide (CAS RN 7722-84-1)	12% w/w
Sulphuric acid (CAS RN 7664-93-9)	15% w/w
Nitromethane (CAS RN 75-52-5)	16% w/w
Potassium chlorate (CAS RN 3811-04-9)	40 % w/w
Potassium perchlorate (CAS RN 7778-74-7)	40 % w/w
Sodium perchlorate (CAS RN 7601-89-0)	40 % w/w

Ammonium Nitrate and Sodium Chlorate

Ammonium nitrate and sodium chlorate are classified as Tier 1 substances for licensing purposes under the 2014 Regulations, as amended. However, when suppliers make available these substances above the following specified limit values, they become subject to informing the supply chain and verification upon sale obligations, which apply to Tier 2 substances. Full details of these obligations can be found below.

Substance	Limit value
Ammonium nitrate (CAS RN 6484-52-2)	16 % w/w of nitrogen in relation to ammonium nitrate.
Sodium chlorate (CAS RN 7775-09-9)	40% w/w

Reportable Substances

All Tier 1 and Tier 2 substances, together with the below additional substances, are subject to a requirement to report suspicious transactions and significant disappearances and thefts. More detail on this requirement can be found below. 

The additional reportable substances are:

• Acetone 
• Calcium nitrate 
• Magnesium, powders 
• Magnesium nitrate hexahydrate 
• Aluminium powders
• Sulfur

Restrictions and Licensing 

The below table sets out the restrictions and licensing requirements for professional users/economic operators and members of the general public to deal with certain explosives precursors. 

It is a criminal offence for a person who requires a licence to deal with controlled substances without such a licence. If found guilty of such an offence, there is a maximum penalty of two years imprisonment and/or a fine. It is also a criminal offence for a member of the general public to deal with certain explosives precursors at specific high concentrations, which are set out below. Dealing with means possessing, acquiring, using or importing into Northern Ireland.

Substance	Professional Users and Economic Operators	Members of the General Public
Ammonium nitrate (CAS RN 6484-52-2)	Professional users and economic operators require a Tier 1 licence to deal with ammonium nitrate, unless the mixture contains: (a) not more than 27.65% by weight of nitrogen in relation to ammonium nitrate; and (b) not more than 0.4% by weight of combustible material.	A member of the general public: Cannot deal with, or be given a licence to deal with, ammonium nitrate at concentrations above 16 % w/w of nitrogen in relation to ammonium nitrate. Requires a Tier 1 licence to deal with ammonium nitrate at concentrations of up to 16 % w/w of nitrogen in relation to ammonium nitrate if the mixture contains more than 0.4% w/w combustible material. Can deal with ammonium nitrate at concentrations up to 16% w/w of nitrogen in relation to ammonium nitrate without a licence , if the mixture contains up to 0.4% by weight of combustible material.
Calcium ammonium nitrate (CAS RN 15245-12-2)	Professional users and economic operators require a Tier 1 licence to deal with calcium ammonium nitrate, unless the mixture contains: (a) not more than 27.65% by weight of nitrogen in relation to ammonium nitrate; and (b) not more than 0.4% by weight of combustible material.	A member of the general public requires a Tier 1 licence to deal with calcium ammonium nitrate, unless the mixture contains: (a) not more than 27.65% by weight of nitrogen in relation to ammonium nitrate; and (b) not more than 0.4% by weight of combustible material.
Sodium chlorate (CAS RN 7775-09-9)	Professional users and economic operators require a Tier 1 licence to deal with sodium chlorate, unless mixture contains: (a) 13% or more by weight of water; (b) 30% or more by weight of calcium chloride dehydrate; and (c) an inorganic anti-segregation agent which - (i) prevents the separation of liquid and solid phases under the normal conditions of transport, storage and handling, and (ii) is not capable of chemical reaction with sodium chlorate.	A member of the general public: Cannot deal with, and cannot be given a licence to deal with, sodium chlorate above 40% w/w. Requires a Tier 1 licence to deal with sodium chlorate at 40% w/w or below, unless the mixture contains: 13% or more by weight of water; 30% or more by weight of calcium chloride dehydrate; and an inorganic anti-segregation agent which prevents the separation of liquid and solid phases under normal conditions of transport, storage and handling, and is not capable of chemical reaction with sodium chlorate.
Potassium nitrate (CAS RN 7757-79-1)	Professional users and economic operators require a Tier 1 licence to deal with potassium nitrate, unless mixture: (a) has been manufactured for the purpose of commercial supply, and (b) contains not more than 5% by weight of— (i) potassium nitrate, or (ii) potassium nitrate in combination with sodium nitrate.	Members of the general public require a Tier 1 licence to deal with potassium nitrate, unless mixture: (a) has been manufactured for the purpose of commercial supply, and (b) contains not more than 5% by weight of— (i) potassium nitrate, or (ii) potassium nitrate in combination with sodium nitrate.
Sodium nitrate (CAS RN 7631-99-4)	Professional users and economic operators require a Tier 1 licence to deal with sodium nitrate, unless mixture: (a) has been manufactured for the purpose of commercial supply, and (b) contains not more than 5% by weight of— (i) sodium nitrate, or (ii) sodium nitrate in combination with potassium nitrate.	Members of the general public require a Tier 1 licence to deal with sodium nitrate, unless mixture: (a) has been manufactured for the purpose of commercial supply, and (b) contains not more than 5% by weight of— (i) sodium nitrate, or (ii) sodium nitrate in combination with potassium nitrate.
Hexamine (CAS RN 100-97-0)	Professional users and economic operators do not require a licence to deal with hexamine.	Members of the general public require a Tier 2 licence to deal with hexamine at any concentration.
Hydrochloric acid (CAS RN 7647-01-0)	Professional users and economic operators do not require a licence to deal with hydrochloric acid.	Members of the general public require a Tier 2 licence to deal with hydrochloric acid at concentrations above 10% w/w.
Phosphoric acid (CAS RN 7664-38-2)	Professional users and economic operators do not require a licence to deal with phosphoric acid	Members of the general public require a Tier 2 licence to deal with phosphoric acid at concentrations above 30% w/w.
Nitric acid (CAS RN 7697-37-2)	Professional users and economic operators do not require a licence to deal with nitric acid	Members of the general public require a Tier 2 licence to deal with nitric acid at concentrations above 3% w/w. However, members of the general public are not permitted to deal with nitric acid at concentrations above 10% w/w. Therefore, no licences can be issued above this concentration.
Hydrogen peroxide (CAS RN 7722-84-1)	Professional users and economic operators do not require a licence to deal with hydrogen peroxide.	Members of the general public require a Tier 2 licence to deal with hydrogen peroxide at  concentrations above 12% w/w. However, members of the general public are not permitted to deal with hydrogen peroxide at concentrations above 35% w/w. Therefore, no licences can be issued above this concentration.
Sulphuric acid (CAS RN 7664-93-9)	Professional users and economic operators do not require a licence to deal with sulphuric acid.	Members of the general public require a Tier 2 licence to deal with sulphuric acid at concentrations above 15% w/w. However, members of the general public are not permitted to deal with sulphuric acid at concentrations above 40% w/w. Therefore, no licences can be issued above this concentration.
Nitromethane (CAS RN 75-52-5)	Professional users and economic operators do not require a licence to deal with nitromethane.	Members of the general public require a Tier 2 licence to deal with nitromethane at concentrations above 16% w/w.
Potassium chlorate (CAS RN 3811-04-9)	Professional users and economic operators do not require a licence to deal with potassium chlorate.	Members of the general public are not permitted to deal with potassium chlorate at concentrations above 40% w/w. Therefore, no licences can be issued above this concentration. Below this concentration members of the general public do not require a licence to deal with potassium chlorate.
Potassium perchlorate (CAS RN 7778-74-7)	Professional users and economic operators do not require a licence to deal with potassium perchlorate.	Members of the general public are not permitted to deal with potassium perchlorate at concentrations above 40% w/w. Therefore, no licences can be issued above this concentration. Below this concentration members of the general public do not require a licence to deal with potassium perchlorate.
Sodium perchlorate (CAS RN 7601-89-0)	Professional users and economic operators do not require a licence to deal with sodium perchlorate.	Members of the general public are not permitted to deal with sodium perchlorate at concentrations above 40% w/w. Therefore, no licences can be issued above this concentration. Below this concentration members of the general public do not require a licence to deal with sodium perchlorate.

Changes to licensing from 1 January 2021 for EPP licence holders

Following the completion of the UK’s transition period in leaving the EU, an Explosives Precursors and Poisons (EPP) licence issued by the Home Office, will no longer be recognised in Northern Ireland.  These changes will apply to all current and future licence holders.  

To acquire, import, possess or use explosives precursors in Northern Ireland from 1 January 2021, it will be necessary to apply for a Northern Ireland License. EPP licences will continue to be recognised in England, Wales and Scotland.

EPP licences can include substances classified as poisons.  In Northern Ireland, poisons are the responsibility of the devolved administration. All enquiries should be directed to the Northern Ireland Department of Health.

Licence applications

An application form for licences can be downloaded from this guide. It is important that forms are completed in full, as incomplete applications may result in licences being delayed or refused.

All licence applications, including renewal applications must be accompanied by one of the following valid forms of identification:

• Passport issued by the UK, an EEA State or another country or territory
• National identity card issued by an EEA State
• Great Britain or Northern Ireland photo-card driving licence
• UK biometric immigration document
• Electoral identity card

Applicants may be asked to provide further documentation in support of an application, for example, a medical certificate.

NIO Explosives Precursors Application Form (MS Word Document, 2.19 MB)

Fees

The fee for a new Tier 1 licence is £100 and £35 for Tier 2. A single licence may be granted for more than one substance. A single licence may also be issued for a combination of categories.

A re-grant of both categories of licence will cost £35, as long as none of the storage arrangements has changed.

The fee for the grant of a tier 1 licence is £100 and for a tier 2 licence it is £35. A single licence may be granted for more than one substance. A single licence may also be issued for both tier 1 and tier 2 substances.

A re-grant of both tier 1 and tier 2 licences will cost £35, as long as none of the storage arrangements has changed.

Full details of the fees structure is covered in regulation 6 of the Control of Explosives Precursors etc. Regulations (Northern Ireland) 2014.

Payment should be made for licences by BACS or cheque. Cheques should be made payable to ‘Northern Ireland Office’. Applicants paying by BACS should use the following details:

• Sort Code: 950121
• Account Code: 20299715
• Ref: Name of payee, or licence ref (if known)
• The account holder: NIO
• Bank: Danske Bank

The remittance advice should be emailed to niofinance@nio.gov.uk.

Other methods of payment are not accepted.

Payment must be made with the licence application. Payments are non-refundable. In the event that a cheque is returned without funds being cleared, the licence application will be cancelled.

Consideration by the Secretary of State

In deciding whether to grant or amend a licence, the Secretary of State for Northern Ireland must take into account all the circumstances of the case, including:

• The intended use of the substance
• the availability of the substance at lower concentrations or alternative substances with a similar effect
• the background of the applicant, including information on previous criminal convictions (including any within the European Union)
• whether the applicant (and the responsible person) is a fit and proper person to deal with the substance;
• any danger to public safety or public order that may be caused by the applicant dealing with the substance;
• the proposed arrangements to ensure that the substance is securely stored.

In relation to intended use, the Secretary of State may consider whether there is evidence to support the stated purpose of use, such as links to the applicant’s occupation or hobbies. The applicant may be required to provide additional information about the intended use.

If the applicant is aware of alternative substances that would achieve the same purpose, their application should provide further information about why it is not suitable or desirable.

The Police Service of Northern Ireland (PSNI) will carry out background checks on persons applying for a licence to assess their fitness to deal with the substances and ascertain whether they present any danger to public safety or public order.

When considering an application or revocation of a licence, the Secretary of State will take into account whether a person has been involved in, or is suspected of being involved in criminal activity, and will consider any previous convictions, cautions or ongoing criminal proceedings. In particular, any conviction which involves the use, planned use or threatened use of explosives or a disregard for public safety will be relevant. Convictions or cautions relating to a previous failure to comply with a licence for explosives precursors (taking account of the seriousness of the offence) will also be relevant.

Other information indicating involvement in serious criminal offences, especially those involving the use, planned use, or threatened use of explosives, or evidence of association with those who have had unlawful involvement with explosives, may also be relevant.

Where an applicant is a foreign national or has lived overseas, enquiries may be made with the authorities of that country (through Interpol or other agencies) for example, to check if the applicant has a criminal record overseas that would have a bearing on their fitness. This includes applicants from overseas who have been granted British citizenship.

Where an applicant has previous convictions or cautions, or where any information received casts doubt on their fitness, the Secretary of State may consider whether to approach agencies likely to have had involvement with them; such as the probation service or social services. The Secretary of State will ensure that such enquiries are focused on ascertaining whether there is any further evidence that the person is unfit to deal with an explosives precursor.

The Secretary of State will also give consideration to cases where a GP’s report reveals that an applicant has exhibited, or is exhibiting, signs of depression, suicidal tendencies, long-standing or intermittent periods of either emotional instability or unpredictable behaviour. This would include individuals who had been detained under the civil powers of the Mental Health (Northern Ireland) Order 1986 because their behaviour posed a risk to the public. Particular attention will be paid to anyone who has previously been subject to a hospital order, guardianship order or restriction order under the provisions of the Mental Health Act 1983 following the commission of offences.

Where an applicant has declared on their application form that they have suffered from a mental or nervous disorder, they may be asked to provide a report from their GP. A history of past treatment for certain illnesses or conditions, such as depression or stress, does not automatically mean a person is unfit to possess an explosive precursor. It is simply one of the factors to be considered with all other evidence relating to the applicant’s character and history. In such cases, the latest medical opinion will be taken into account.

Any history of serious incidents involving explosives precursors, including their loss, or a careless approach to their handling, will receive close consideration.

Cooperation with the licensing authority and the PSNI during the application process will also be taken into account. The following examples may indicate that a person has not complied with the need to cooperate:

• The making of abusive or threatening phone calls to the staff of the Secretary of State
• Refusal to permit an authorised police officer to inspect licensed explosives precursors or arrangements for the secure keeping of the substance
• Failure to respond to requests for information or to reply to correspondence

Decisions on fitness to possess a precursor will be made on an assessment of all the relevant information and on the individual merits of each case.

The factors that are relevant to the fitness of an applicant may also be relevant to consideration of whether there is danger to public safety or public order if they deal with a substance. However, even where the Secretary of State does not have concern about an applicant’s fitness, their circumstances might be such that they pose a risk to public safety or public order. Relevant considerations include whether other people will have access to the substances, and their location and intended use. The security of proposed storage arrangements will also be relevant in assessing the danger to public safety or public order.

Storage

In relation to both Tier 1 and Tier 2 substances, the applicant is expected to provide information about the arrangements for their secure storage. The Secretary of State is required to have regard to these arrangements when considering licence applications. The PSNI may inspect the storage arrangements and advise the Secretary of State on their adequacy. The Secretary of State may also take advice from other bodies or agencies. Whether storage arrangements are judged to be sufficiently secure will depend on the specific circumstances in each case, in particular the quantity and nature of the substance concerned. In the absence of secure storage arrangements, the application for a licence may be refused.

Licence holders must also comply with any applicable storage requirements under health and safety law, and guidance for substances in their possession. For further information about health and safety requirements, please contact the Health and Safety Executive for Northern Ireland.

Licence holder obligations

All licence holders must:

• Permit inspection of the licence, the substance or the place of storage when requested by the Secretary of State or PSNI;
• Provide the Secretary of State or the PSNI with information when requested;
• Notify the Secretary of State if the licence is lost or stolen, or if the licence holder changes address or is charged or convicted of an offence, or if there is any other material change of circumstances;
• Return any expired licence, or a licence which has been amended, varied, suspended or revoked, to the Secretary of State;
• Provide the licence for inspection when acquiring a substance.

Tier 1 Substances: Police Consent

Individuals who hold a Tier 1 substance licence must apply in writing for police consent for the acquisition, transport, import into Northern Ireland, or supply for dispatch or export, of more than 500g by weight or 500ml by measure of the substance.

The application must be made on an approved form that contains the name and address of the supplier and is signed by the applicant, and must usually be submitted no less than 14 days before the transaction. The forms to apply for police consent can be downloaded below.

Application for consent to transactions involving Tier 1 substances (MS Word Document, 178 KB)

Application for consent to despatch or export Tier 1 substances (MS Word Document, 178 KB)

Tier 1 Substances: Record keeping

Tier 1 licence holders must complete a record of each acquisition, supply or import into  Northern Ireland. 

This should contain the type and date of the transaction, the nature and quantity of the substance, and the name and address of the other party involved (the acquirer or supplier). 

The record must be completed at the time of the transaction and include a separate entry for each different substance. The record must be retained for 2 years and provided to the Secretary of State or an authorised officer for inspection on request. 

Licence holders must also retain all documents relating to transactions for 2 years.

Guidance for Suppliers of Explosive Precursors

Supplying explosives precursors

Professional users and members of the general public require a licence before they can be supplied with Tier 1 substances at certain concentrations. The supplier also needs to have a licence if they are based in Northern Ireland. 

Members of the general public also require a licence to be supplied with certain Tier 2 substances, at certain concentrations. However, there is no requirement for the supplier to be licensed in relation to Tier 2 substances. 

Police consent will be necessary for transactions involving a quantity greater than 500g by weight or 500ml by measure of a Tier 1 substance.

Verification upon sale

If an individual requests to acquire a substance for which a licence is required, economic operators are required to undertake the following checks for each transaction.

• ask to see their licence and associated photographic ID;
• compare the photograph to the customer;
• check the product to be purchased is allowed as part of the licence conditions, including type, concentration and quantity;
• record the transaction details in the table on the back of the licence;
• keep verification records for a minimum of eighteen months.

If the licence cannot be verified then the substance must not be supplied.

If the transaction is suspicious or unusual in any way you should report it as advised below. 

It is a criminal offence to supply Tier 1 and Tier 2 substances to any person who requires, but does not hold, a valid licence. 

Sales of Tier 2 substances, ammonium nitrate and sodium chlorate to professional users or other economic operators

A member of the general public should not be able to acquire controlled explosives precursors by claiming to be a professional user or an economic operator.

Therefore economic operators supplying the following substances to professional users or other economic operators will need to take additional steps to verify the legitimacy of the professional user or business: 

• Tier 2 substances
• Ammonium Nitrate (at concentrations above 16 % w/w of nitrogen in relation to ammonium nitrate)
• Sodium Chlorate (at concentrations above 40%)

The person making the sale must obtain the following from the business customer:

• the proof of identity of the individual entitled to represent the prospective customer;
• their trade, business or profession together with the company name, address and the value added tax identification number or any other relevant company registration number, if any, of the prospective customer;
• the intended use of the restricted explosives precursor. 

This information must be recorded and retained for 18 months and available for inspection.

Economic operators should also check whether the prospective customer is authorised to act on behalf of their company or institution. The person representing the prospective customer should be able to present confirmation from their employer that they are authorised to purchase or receive restricted explosives precursors on the employer’s behalf. 

In all cases, the supplier should assess whether the intended use is reasonably consistent with the trade, business or profession. If in doubt, the sale must be refused and reported as a suspicious transaction within 24 hours.

Verification information is required for each transaction, unless a previous verification for that customer occurred within the past year and the current transaction does not significantly deviate from prior activity. Significant deviations include:

• If the prospective customer wants to buy a much bigger quantity of the restricted explosives precursor without a logical explanation; 
• If the address of the prospective customer changes; — If the delivery address or delivery method changes;
• If the payment method changes;  
• If the contact details of the prospective customer change. 

For the purposes of this requirement, examples of photographic identification can include: passport, driving licence, trade identification card, business ID card. This list is not exhaustive.

In order to ensure that all information is provided, the economic operator is recommended to ask the prospective customer to fill in the ‘customer’s statement’ which can be downloaded below.

Customer’s Statement (MS Word Document, 14.9 KB)

Supply of Tier 1 Sodium Chlorate and Ammonium Nitrate

Unless the exception applies, Sodium Chlorate and Ammonium Nitrate are Tier 1 substances. Professional users require a licence to acquire, import, possess or use sodium chlorate or ammonium nitrate at these concentrations in Northern Ireland. 

Therefore, economic operators supplying Tier 1 Sodium Chlorate and Ammonium Nitrate to professional users will find the information needed to verify the legitimacy of the professional user on the Tier 1 license. In these cases, it is recommended that the supplier takes a copy of the license.

Specific recommendations for remote sales 

Economic operators conducting remote sales are recommended to request a scanned copy of the customer’s licence and proof of ID, so they can verify this information as early as possible (e.g. before finalising the transaction), but at the latest before the time of delivery of the restricted explosives precursors). Economic operators conducting remote sales are not required to keep a copy of the licence.

The proof of identity could additionally be verified in person upon delivery. It is important to note that the verification responsibility stays with the economic operator conducting remote sales, even if delivery services are instructed to verify documents. The fact that the licence and proof of ID have been verified, and the manner in which this was done, needs to be recorded. 

The transaction could be recorded on the licence upon delivery, in which case the economic operators conducting remote sales should instruct the delivery person to that end.

Steps to take by economic operators conducting remote sales: 

1. Ask the customer to provide a scanned copy of their licence and their proof of ID (or verify their ID electronically). 
2. Check that the person holding the licence is the same as the person on the proof of ID. 
3. Check that the product being purchased matches the licence conditions: i) Substance; ii) Concentration; iii) Quantity.
4. If you require customers to register for a customer account, you could allow them to upload a scanned copy of their licence to their account record. 

Steps to take by the delivery person before handing over the restricted explosives precursor:

1. Check that the photographic ID matches the person, and that the ID reference matches the ID reference on the licence front page. 
2. The restricted explosives precursor should only be given to the licence holder. It cannot be left with another individual.

Informing the supply chain

Tier 2 Substances, Ammonium Nitrate and Sodium Chlorate 

An economic operator who makes Tier 2 substances available to another economic operator must make it clear to that economic operator that they can only be made available to,  introduced, possessed or used by members of the general public subject to the licensing requirements in the Control of Explosives Precursors etc. Regulations (Northern Ireland) 2014 and Regulation (EU) 2019/1148. 

The method used to fulfil the obligation to inform the supply chain is for the economic operator to determine. It is recommended to provide the information in writing, so that there will be documentation on whether the supply chain was informed. 

If the economic operator chooses to provide the information through labelling, the label must state that the acquisition, importation, possession or use of the substance by the general public is restricted, and the label must be in English, whether or not it is also in another language.

Reportable Substances

An economic operator who makes available a Tier 1, Tier 2, or reportable explosives precursor to another economic operator must also inform them that the substance is subject to certain reporting obligations. 

Again, the method used to fulfil the obligation to inform the supply chain is for the economic operator to determine. It is recommended to provide the information in writing, so that there will be documentation on whether the supply chain was informed. 

Provision of Information to Workers

Economic operators supplying a Tier 1, Tier 2 or reportable explosives precursor to professional users or members of the public must also ensure and be able to demonstrate that its staff are:

• Aware of their obligations under the 2019 Precursors Regulation and The Control of Explosives Precursors etc. Regulations (Northern Ireland) 2014;

• Aware which of the products it makes available contain regulated explosives precursors;

• Instructed regarding their legal obligations regarding which substances can be made available to, introduced, possessed or used by whom; who is required to hold licences; the need to inform the supply chain; verification upon sale and reporting of suspicious transactions, disappearance and thefts.

Reporting suspicious transactions 

For the purpose of preventing and detecting the illicit manufacture of explosives, economic operators and online marketplaces must report suspicious transactions of  Tier 1, Tier 2, and reportable substances. 

A ‘suspicious transaction’ means any transaction for which there are reasonable grounds, after taking account of all relevant factors, to suspect the substance or mixture is intended for the illicit manufacture of explosives. These might include the prospective customer acting in one or more of the following ways:
- appearing unclear about the intended use of the regulated explosives precursors; - appearing unfamiliar with the intended use of the regulated explosives precursors or cannot plausibly explain it; - intending to buy regulated explosives precursors in quantities, combinations or concentrations uncommon for legitimate use; - is unwilling to provide proof of identity, place of residence or, where appropriate, status as professional user or economic operator; - insists on using unusual methods of payment, including large amounts of cash.

Economic operators and online marketplaces have the right to refuse a suspicious transaction and must report it. It is a criminal offence to fail to report a suspicious transaction.

When reporting such transactions, suppliers must give the identity of the customer if possible and all the details which have led them to consider the transaction to be suspicious. 

All suppliers must have appropriate, reasonable and proportionate procedures in place to detect suspicious transactions, adapted to the specific environment in which the regulated explosives precursors are made available.

Reports must be made within 24 hours, to one of the following numbers:

• 101 (PSNI)
• 999 (for emergencies only)
• 0800 789 321 (anti-terrorist hotline)
• 0800 555 111 (Crimestoppers)

Alternatively, reports may emailed to chemical.reporting@psni.pnn.police.uk or made online at www.psni.police.uk/report

Reporting significant disappearance and thefts

### Who must report

Economic operators, professional users, and licence holders must report significant disappearances and thefts of Tier 1, Tier 2, and reportable substances within 24 hours of detection to the police. It is a criminal offence to fail to report a significant disappearance or theft.

It should be assessed on a case-to-case basis whether disappearances or thefts are significant.

Whether a theft or disappearance is ‘significant’ depends on whether the amount is unusual considering all circumstances of the case. For example, circumstances pointing to a normal occurrence of shoplifting might not be suspicious. 

It is important to note that explosives with lethal potential can be manufactured out of relatively small amounts of precursors. In case of doubt whether a theft or disappearance is significant, economic operators, professional users and licence holders should contact the police.

Measures to detect disappearances and thefts include:

• Establish detailed records on purchases, selling and stock keeping of regulated explosives precursors and mixtures;
• Check periodically the stock to identify disappearances.

Reports must be made within 24 hours of detection, to one of the following numbers:

• 101 (PSNI)
• 999 (for emergencies only)
• 0800 789 321 (anti-terrorist hotline)
• 0800 555 111 (Crimestoppers)

Alternatively, reports may emailed to chemical.reporting@psni.pnn.police.uk or online at www.psni.police.uk/report

Reports should include as much detail as possible, including details on the exact product, concentrations of explosives precursors, amount missing, where and how the product was stored, and any estimations on the time of the theft/disappearance. 

Frequently asked questions

FAQs: Retailers/other suppliers to the public

Do I need a licence to supply substances listed in the Precursors Regulation?

You need to have a licence to supply a Tier 1 substance. 

However, you do not need a licence to supply the regulated substances in Tier 2, except in the case of ammonium nitrate and sodium chlorate, which are Tier 1 substances for the purposes of licensing in Northern Ireland.

If you supply either set of substances (whether for payment or free of charge) to a person who requires a licence for acquisition, you are responsible for checking their licence and identification and recording the transaction on the back of the licence. You are also responsible for reporting suspicious transactions, significant thefts and losses of any controlled substances.

Why do I need a licence to buy or sell restricted substances?

Certain chemicals have been tightly controlled since the early 1970s as they have been used in terrorist attacks in Northern Ireland and across the UK. It is necessary for these tighter controls to remain in place to ensure the safety of the public.

What documentation do I need to check before completing the supply of a Tier 1 substance?

You need to check that the person acquiring the substance has a valid licence and photographic ID, specifically a passport, EEA national identity card, photocard driving licence from Northern Ireland or Great Britain, biometric immigration document or electoral identity card. You also need to ensure that the acquisition is consistent with the conditions on the licence, and you need to fill out the log on the back of the licence.

What documentation do I need to check before completing the supply of a Tier 2 substance to a member of the public?

You need to check that the person acquiring the substance has a valid licence and photographic ID, specifically a passport, EEA national identity card, photocard driving licence from Northern Ireland or Great Britain, biometric immigration document or electoral identity card. 

In addition, you need to ensure that the acquisition is consistent with the conditions on the licence, and must fill out the log on the back of the licence.

What happens if I supply a controlled substance without checking if the purchaser has a valid licence?

It is an offence to supply a controlled substance to a person requiring a licence without checking they have a valid licence. If you do so, you may be liable to up to 2 years imprisonment, a fine, or both.

Do I need to check a customer’s intended use of an explosives precursor? 

If the purchaser of a relevant substances listed below is a professional user or economic operator, the supplier should:

• seek proof of the trade, business, or profession together with the company name, address and the value added tax identification number or any other relevant company registration number of the prospective customer
• determine if the intended use of the restricted explosives precursors by the prospective customer is consistent with their trade, business or profession

The relevant substances are: 

• Any Tier 2 substance
• Ammonium Nitrate (at concentrations above 16 % w/w of nitrogen in relation to ammonium nitrate)
• Sodium Chlorate (at concentrations above 40%)

What is a suspicious transaction?

A ‘suspicious transaction’ means any transaction for which there are reasonable grounds, after taking account of all relevant factors, to suspect the substance or mixture is intended for the illicit manufacture of explosives. In other words, it means any transaction which deviates from ordinary expectations or interactions. These might include the prospective customer acting in one or more of the following ways:
- appearing unclear about the intended use of the regulated explosives precursors; - appearing unfamiliar with the intended use of the regulated explosives precursors or cannot plausibly explain it; - intending to buy regulated explosives precursors in quantities, combinations or concentrations uncommon for legitimate use; - is unwilling to provide proof of identity, place of residence or, where appropriate, status as professional user or economic operator; - insists on using unusual methods of payment, including large amounts of cash.

How do I report a suspicious transaction?

Suspicious transactions should be reported within 24 hours to one of the following numbers:

• 101 (PSNI)
• 999 (for emergencies only)
• 0800 789 321 (anti-terrorist hotline)
• 0800 555 111 (Crimestoppers)
• Alternatively, reports may emailed to chemical.reporting@psni.pnn.police.uk or online at www.psni.police.uk/report

When reporting such transactions, you should give the identity of the customer if possible and all the details which have led you to consider the transaction to be suspicious.

When is police consent required?

Individuals who hold a Tier 1 substance licence must apply in writing for police consent for the acquisition, transport, import into Northern Ireland, or supply for dispatch or export, of more than 500g by weight or 500ml by measure of the substance.

You must apply for consent at least 14 days in advance of the transaction, unless the Chief Constable agrees to a shorter period. The application must be on the approved form, which is available from this guide.

What happens if I don’t keep records of transactions?

Failure to keep the records required under the legislation is an offence. If you do so, you may be liable to up to 2 years imprisonment, a fine, or both. And your licence may be revoked.

What happens if the responsible person in my company leaves the business?

If the named responsible person leaves your business, you must apply to the Secretary of State to amend the licence with details of the new responsible person. See the section on applications for further information.

I only supply products to other businesses, am I still responsible for reporting suspicious transactions?

Yes, all suspicious transactions, significant losses and thefts need to be reported.

What if I am based in Great Britain?

This legislation and guidance only applies in Northern Ireland. However if you are a member of the general public receiving explosives precursors from Northern Ireland subject to licensing in Great Britain, you will need to show the supplier your Home Office issued licence. You can find more information on the controls of explosive precursors in Great Britain here. 

FAQs: Members of the public

What kinds of checks are carried out before I can be issued with a licence?

The PSNI will carry out background checks on those applying for Tier 1, and Tier 2 licences on behalf of the Secretary of State. This is to assess whether you can be entrusted with a licence, and whether there would be any danger to public safety or public order if you are permitted to deal with the substances. Checks will include criminal records and medical information. Where the licence is for a Tier 1 substance, the PSNI will also examine the storage arrangements for the substances on behalf of the Secretary of State.

I have a previous conviction. Does that mean I will not be granted a licence?

Not necessarily. Each case will be judged on its own merit so a criminal record does not necessarily mean that you would be refused a licence. For example, previous convictions for offences involving explosives, firearms or serious violence may result in an application being refused, but previous convictions for traffic offences are less likely to result in an application being refused.

I have been refused the grant of a licence. Can I appeal this decision?

You can ask the Secretary of State to re-consider this decision. You will need to make an application for an internal review using the form below.

Precursors licence: Application for internal review (MS Word Document, 199 KB)

If you disagree with the Secretary of State’s decision on internal review, you can challenge that decision by judicial review. Information on seeking a judicial review can be obtained from the NI Courts and Tribunals Service

I have a licence that was issued in Great Britain. Can I use it to purchase a regulated substance in Northern Ireland?

From 1 January 2021, licences issued by the Home Office are no longer recognised in Northern Ireland.  You will need to apply to the Secretary of State for Northern Ireland for another licence should you wish to acquire, import, possess or use explosive precursors in Northern Ireland. 

FAQs: Fees

Do I have to pay a fee if I change my address?

Yes, due to the administrative costs of issuing a new licence, a fee is payable for any change to the licence. The level of the fee payable depends on the change being made. See the fees section of the regulations for further information.

I have been refused the grant of a licence. Is my fee refundable?

No, fees for licence applications are non-refundable.

FAQs: General questions

How long does a licence last for?

Licences will be issued for up to 3 years. The specific period may vary, depending on the applicant.

I need a Tier 2 chemical for my company. Do I need a licence?

Professional users and economic operators do not need a licence to use the regulated substances in Tier 2, except in the case of ammonium nitrate and sodium chlorate. 

Professional users and economic operators require a Tier 1 licence to use ammonium nitrate or sodium chlorate, unless the exception listed in the table above applies.

How long will it take for my application to be dealt with?

It will usually take about 6 weeks for licences to be issued following an initial application. This allows time for the PSNI to carry out the necessary checks and for the application to be considered and the licence issued. In many cases the licence will be issued sooner than 6 weeks, but in unusual cases it may take longer. If you have a specific reason for your application to be expedited, you should state this on the form, but it will not be possible to guarantee a particular time frame.

What happens if I lose my licence?

If your licence is lost or stolen, you must notify the Secretary of State as soon as possible. It is an offence to fail to notify the Secretary of State of a lost or stolen licence. You should also indicate whether you want the licence to be cancelled or replaced. A fee of £15 will be charged for the replacement of lost or stolen licences.

Definitions

Substance - a chemical element and its compounds in a natural or manufactured state

Mixture - a mixture or solution composed of two or more substances

Member of the General Public - means a person who is acting for purposes not connected with that person’s trade, business or profession (and a trade, business or profession may include the performance of a function of a public nature within the meaning of section 6 of the Human Rights Act 1998);

Professional user - means any natural or legal person or public entity or group of such persons or entities that has a demonstrable need for a restricted explosives precursor for purposes connected with its trade, business, or profession. This includes schools, and  agricultural activity (conducted either on a full-time or part-time basis and not necessarily related to the size of the area of land on which that agricultural activity is conducted), provided that such purposes do not include making that restricted explosives precursor available to another person.

Economic operator - means any natural or legal person or public entity or group of such persons or entities which make regulated explosives precursors available on the market, either offline or online, including on online marketplaces;

Supplier - means any natural or legal person or public entity or group of such persons or bodies which make regulated explosives precursors available on the market, either offline or online to other such persons or entitles, including in return for payment or free of charge and including for safe disposal.

Online marketplace - means a provider of an intermediary service that allows economic operators on the one side, and members of the general public, professional users, or other economic operators, on the other side, to conclude transactions regarding regulated explosives precursors via online sales or service contracts, either on the online marketplace’s website or on an economic operator’s website that uses computing services provided by the online marketplace;

Use - means any processing, formulation, consumption, storage, keeping, treatment, filling into containers, transfer from one container to another, mixing, production of an article or any other utilisation.

Contacts

Queries in writing should be made to: Precursor Licencing NSCP / SPG Northern Ireland Office 7th Floor Erskine House 20-32 Chichester St Belfast BT1 4GF

For further information you can email us at: security-and-legacy-casework@nio.gov.uk 

Useful links

• The Control of Explosives Precursors etc. Regulations (Northern Ireland) 2014
• Regulation (EU) 98/2013 on the marketing and use of explosives precursors (the ‘Precursors Regulation’), 
• Commission Notice Guidelines for the implementation of Regulation (EU) 2019/1148 on the marketing and use of explosives precursors 2020/C 210/01