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Export Controls and University Research
Grainne Martin
Senior Associate Counsel
Office of the General Counsel
Legal Basis for Export Controls
Export Administration Act of 1969
Export Administration Regulations (EAR)15 CFR §§730-774Department of CommerceDual use items
Legal Basis for Export Controls
Arms Export Control Act of 1976
International Traffic in Arms Regulations (ITAR) 22 CFR §§120-130 Department of State Defense articles, defense services, related technical
data (inherently military in nature) More complex, restrictive, ambiguous than EAR;
definitions of some key terms arguably internally inconsistent
Applicability
Nature of the goods, technology, data (actual or potential issues for economic protections or military applications)
Destination (country, organization, individual)
Intended or suspected end use or end user
EAR
Goods and related technology listed on Commerce Control List (CCL, 15 CFR §774, Supp.1)
10 categories: license requiredNuclear materials; chemicals,
microorganisms, toxins; electronics; computers; telecommunications; lasers and sensors; avionics; marine; propulsion systems
EAR 99
Additional “catch-all” categoryGoods/technology “subject to the EAR” as
defined in 15 CFR §734.3(a) but not on the CCL
May or may not require license, depending on destination (country, individual)
ITAR
Defense articles, defense services, related technical data on US Munitions List (USML) at 22 CFR §121
Inherently military in nature (designed to kill/defend against death in military situation)
21 categories: requires license Includes weapons, chemical and biological agents,
vehicles, missiles, equipment, all satellites
Background
Early 1980s: Government began to apply export controls to defense articles used in university research
Involvement of higher education community
Result: NSDD 189 (1985)
NSDD 189
Defined “fundamental research”Basic and applied research in science and
engineeringThe results of which ordinarily are published
and shared broadly within the scientific community
NSDD 189
Distinguished:
fundamental research
research which results in information which is restricted for proprietary reasons or pursuant to specific US government access and dissemination controls
NSDD 189
University research does not qualify as “fundamental research” if:University accepts restrictions on publication of
research results (temporary prepublication review allowed for proprietary/patent purposes)
University accepts specific access and dissemination controls in federally-funded research
NSDD 189
Affirmed government policy that the only appropriate mechanism for controlling “fundamental research” is by national security classification
Background
Two recent events since issuance of NSDD 189 have raised export control issues again for universities1999 Congress transfers jurisdiction for all
satellites (including research satellites) to Dept of State/ITAR
9/11: heightened concerns about national security, stricter interpretation of export control regulations
Since 9/11
November 2001: Bush administration reaffirms that NSDD 189 remains in effect
Efforts by higher education community to remove university research from scope of export control regulations
Increasing applicability to university research Recent audits of several university research
programs
The problem for university research
Expansive definition of “export”Transfer/disclosure outside US to any person
(including US citizen abroad)Transfer/disclosure in any form (verbal,
written, electronic, visual) within US to anyone not a US citizen or permanent resident (green card holder) (“deemed export”)
NOTE: ITAR includes defense services
Significance of deemed export rule
If export controls apply and license is
requiredAnd no exemption is availableHave to obtain license before export-controlled
item/information can be shared abroad or on US campus with foreign national participating in the research
Where certain countries involved, no license available at all
Other examples of restrictions on university research Conferences where previously unpublished
research will be presented: who can participate, co-sponsor
Meetings where unpublished research will be discussed
Teaching foreign collaborators how to use items in research (“defense service”)
Transfers of research equipment abroad
Other issues for universities
Expansion of ITAR jurisdiction to include research satellites and related technology/data (see next slide)
Increasing application of ITAR to the life sciences
MTAs (issues for application of fundamental research exemption)
2002 ITAR amendment
Provides exemption to US universities for certain spacecraft systems fabricated solely for research purposes, IF:Exports are restricted to universities/research
institutions in NATO or other US-allied countries, and
All the information is in the public domain (as defined by 22 CFR §120.11)
Effect of 2002 ITAR amendment
Does not expand the scope of existing fundamental research exemption under ITAR, since public domain information already outside scope of ITAR
Appears to require license for information in the public domain (outside scope of ITAR) for exports to countries outside “NATO or US allies” category
Not reliable authority for proceeding without license in area of satellite research
Exclusions/exemptions
Public domain (ITAR)/publicly available (EAR)
Fundamental research Bona fide/full time regular employees
(ITAR) Educational instruction
Exclusion for public domain/publicly available ITAR definition of public domain:
information which is published and generally accessible to the public through (among other things) fundamental research
EAR: publicly available technology and software outside scope of controls
Public domain/publicly available: exclusion inapplicable To equipment or encrypted software If reason to believe information will be
used for WMD Where US government has imposed
access and dissemination controls as condition of funding (at least under ITAR)
Exclusion for fundamental research
EAR 15 CFR §734.8Basic and applied research in science and
engineering, where the resulting information is ordinarily published and shared broadly within the scientific community
Distinguished from proprietary research and industrial development, the results of which ordinarily are restricted for proprietary reasons or specific national security reasons
Fundamental research
ITAR 22 CFR §120.11Public domain: information which is published
and which is generally accessible to the publicThrough fundamental research; basic and
applied research in science and engineering at accredited institutions of higher education in the US where the resulting information is ordinarily published and shared broadly in the scientific community
Fundamental research Common elements in ITAR/EAR
Excludes from export controls the disclosure to foreign nationals of information resulting from fundamental research
Exclusion is lost where university accepts restrictions on publication of results or participation by foreign nationals in research
Exclusion inapplicable to sponsor’s existing proprietary information
Applies only to transfer/disclosure of information (not to physical objects or defense services)
Fundamental research exclusion, common elements (con’t) Applies only to disclosures in the US at
accredited institutions of higher learning Foreign national: non-US citizen or lawful
permanent resident
Fundamental research exclusionITAR/EAR compared ITAR: applies to information “which is
published” and generally accessible/available to public
EAR: applies to information “which is publicly available”
Fundamental research exclusionITAR/EAR compared EAR: exclusion not lost where university
accepts temporary publication delay for prepublication review for proprietary/patent purposes
ITAR: does not contain this language, so ambiguity as to whether this safe haven is available
Fundamental research exclusionITAR/EAR compared EAR: exclusion not lost in federally-
funded project where university accepts specific national security controls, so long as controls are not violated in exporting the controlled information
ITAR: exclusion lost in federally-funded project where such controls are accepted
Exemption for bona fide full-time employees (ITAR) Disclosures in the US by US universities of
unclassified technical data to foreign nationals who are University’s bona fide and full-time regular employees Employee’s permanent abode throughout period of
employment is in US Employee not national of embargoed country University informs employee in writing data may not be
transferred to other foreign nationals without government approval
ITAR employee exemption: limitations Visa restrictions may require holder to
maintain foreign residence Researcher may not have full-time
employee status (students, some post-docs)
Exclusion for educational instruction No license needed for classroom/lab teaching of
foreign nationals in US universities EAR: so long as the information is in the public
domain ITAR: specifically removes from definition of
“technical data” “information concerning general scientific, mathematical, or engineering principles commonly taught in schools, colleges, and universities, or information in the public domain
Sanctions for noncompliance
EARCriminal: up to $1M fine or 5x value of export,
whichever larger, per violation; up to 10 yearsCivil: up to $120K per violation, loss of export
privileges ITAR
Criminal: up to $1M per violation, up to 10 yearsCivil: up to $500K per violation, loss of export
privileges, seizure of item