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DEPARTMENT OF JUSTICE

FEDERAL BUREAU OF INVESTIGATION

UMBERT v. U.S.A., et al

Case No. 18-1336(U.S. District Court for D.C.)

ATF June 19, 2018 Letter

Excised Copy
ll.S. Department of .Ju.,licc

.@ Bureau of /\l<.:ohol. Tobacco.


Firearms and Explosi,es

/:11/orc<'me11t />rogram., and SeJTice.\


'JIJ \ "" I orJ. "" \/
II wl1111gw11 /)( ]II]](>

June 19, 2018

MEMORANDUM TO: NICS Section Chier


Criminal Justice Information Services Division
Federal Bureau of Investigation

fROM: Deputy Assistant Director


Enforcement Program Services
Bureau of Alcohol, Tobacco. Firearms and Explosives

SUBJECT: National instant Criminal Background Check System Appeals


Process

This letter is in response to an email received by the National Firearms /\cl (NF/\) Division of
the Bureau of Alcohol. Tobacco. Firearms. and Explosives (/\TF) from the Federal Bureau of
Investigation (FB I) National Instant Criminal Background Check System (NIC ) Section
through ATF Liaison Eric Moore on eptembcr 7. 20 17. Specilically. Mr. Moore stated:

The NJCS Sectiu11 will not process any appeal for the three branches of the ATF
1\tlorti11sb11rg. The responsihilityfor appeals/all 011 the respectil•e hranches ro
handle this area. Please ensure that your de11ial le11ers du nof reference
.rnln11illi11g an appeal to the NICS Section. The c11sto111er would need to appeal
back to your branch. if they wish lo challenge Ihe .final decisio11. I did spec(/ically
reiternte this i11 .June when I pro,·ided the NJCS prohibitor training to yo11r team.

;\s )OU are <man.:. the Gun Control /\ct, 18 U.S.C. Scction 921( t) general !) requ ires that a
Federal firearms licensee shall not transrcr a firearm to Ull) other person \\ho is a non-licensee.
unless th..: licensee contacts 0: ICS. Scc..:tion 103(g.) nl'th...: Brad) .\ct s...:i... out the "ltatutor)
r...:quin.:mcnt-. for appeals.

(g) ( 'orrect ion o/l:rroneou\· -~\s1em !11/(Jr11wt ion .... /.(lier an i11clil'idual i.\
i11/ormecl that po \.\<!r;sion o/ u /irearm H t)Jl/d \'iolate 18 l S ( · <)l] tg) or
<)]]fll}/ . .[tjhe prmpectire tran~fere<' 11w.1 \llh111ir t<> the . lllome1 General
111/(Jr111<1tio11 to correct. clur(/.i'. or supph•111c11t record., o/the .\\'.\fem 1rith respec;t
to the pro.,·pectin• trw1s/eree . . l/ier rec:ei11r o/,\11c'1 i11/omwtim1. the :lll<mn•r
Ge11eml ,Jiu/I i1111111!diure/y c:o11sicler 1he i11/hrmutio11. illl'<'\'ligllte the 11w11er .
.further. and c:orre<.'t llll e1Tv11eo11' Federal rec:ortf., relutin~ to rh<' prospectil'(!

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trnn.~fereeand give notice ofthe error lo any Federal department or agency or
any State that was the source ofsuch erroneous recordv.

The Federal regulations for the National Firearms Act (NF A). 26 U.S.C. Chapter 53, requires, in
relevant part. that "[i]n "ddition to any other records checks that may be conducted lo determine
whether the lrnns.fer, receipt. or possession ofajirearm would place the transferee in violation
oflaw. the Director {ATF] shall contact the National Instant Criminal Background Check
System." 27 C.F.R. 479.86. Additionally, the AG has delegated certain specific authority to ATF
(28 C.F.R. 0.130), but has not delegated to ATF any functions or responsibility of conducting
background checks or maintaining a system of records under the Brady Act. 1

As you will recall, the FBiformally implemented the NICS appeals process, ina Federal
Register notice on June 4, 1998. Specifically, the FBI noted that:

If, as a result ofa NICS background check, an individual is unable to purchase a firearm,
the individual may request the reason(s) for the denial from tlte age11cv t/1at made tlte
determi11atio11 (eitlter t/1e FBI or tile POC>. The denying agency (either the FBI or the
POC) shall respond with the reasons for the denial within five business days ofreceipt of
the request. Tile individual mav c/1al/e11ge t/1e accuracv oft/1e record bv appealing to
tile state or local POC t/1at denied the transfer. the agencv tllat originated t/1e record.
or tile FBI. Ifa record is found to be erroneous, the data in the NICS shall be corrected
and the individual will be provided a written confirmation ofthe correction oferroneous
data lo present lo the FFL. Ifmore than 30 days have transpired since the initial check,
the FFL will recheck the NICS without a fee before allowing the sale lo continue. The
Brady Act also provides that an individual may contest the accuracy or validity ofa
disqualifying record by bringing "an action against the State or political subdivision
responsible for providing the erroneous information, or responsible for denying the
transfer, or against the United States, as the case may be, for an order directing that the
erroneous information be corrected or that the transfer be approved, as the case may be.

63 Fed. Reg. 30430, 30432-30433. (Emphases added).

The NICS regulations also define appeal to mean "a formal procedure to challenge the denial of
afirearm transfer." 28 C.F.R. 25.2. The regulation establishes this formal appeals process under
28 C.F.R. 25.10. Subsection (c) states, in relevant part, that

[i}fthe individual wishes lo challenge the accuracy ofthe record upon which the
denial is based, or ifthe individual wishes to assert that his or her rights to
possess a firearm have been restored, he or she may make application first to the

1
Under28 U.S.C. § 534(a), the Attorney General must "acquire, collect, classify, and preserve identification,
criminal identification, crime, and other records"; must "exchange such records and infonnation with, and for the
official use of, authorized officials of the Federal Government"; and under§ 534(c) may delegate such duties.
Pursuant lo regulations such as 28 C.F.R. §§ 0.85(b), 20.3 l(a) and 50.12, the Attorney General appears lo have
delegated such duties to the FBI. Lindems v. Mukasev, 530 F. Supp. 2d 1044, 1047 (E.D. Wis. Jan. 16, 2008)

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denying agency. i.e•• eit/1er the FBI or t/1e POC. Ifthe denying agency is unable
to resolve the appeal, the denying agency will so notify the individual and shall
provide the name and address ofthe agency that originated the document
containing the information upon which the denial was based. (Emphasis added).

Subsection (d) continues that

As an alternative to the above procedure where a POC was the denying agency,
the individual may elect to direct his or her challenge to the accuracy ofthe
record, in writing. to the FBI••• Upon receipt ofthe information, the FBI will
i11vestigate t/1e matter by contacting the POC that denied the transaction or the
data source. The FBI will request the POC or the data source lo verify that the
record in question pertains lo the individual who was denied. or to verify or
correct the challenged record. The FBI will consider the information it receives
from the individual and the response it receives from the POC or the data source.
Ifthe record is corrected as a result ofthe challenge, t/1e FBI shall so notify the
individual, correct the erroneous information in the NICS, and give notice ofthe
error to any Federal department or agency or any slate that was the source of
such erroneous records. (Emphases added).

Based on the aforementioned and unambiguous statutory and regulatory authority, the FBI is the
agency that must act on appeals that result from NICS denials. There is no legal mechanism-
statutory or regulatory-through which ATF can process NICS appeals. The FBI maintains the
system per the NICS regulations at 28 C.F.R. 25. The NICS system is not managed by ATF.
Therefore, ATF cannot possibly process the appeals submitted for a NICS denial based on
erroneous NICS information. To proceed otherwise invites a likely successful challenge under
the Administrative Procedure Act (APA), 5 U.S.C. § 706, which permits a reviewing court in the
United States to hold unlawful, in part, "any agency action, findings, or conclusions found to be
- (A) arbitrary, capricious, an abuse ofdiscretion, or othe1wise not in accordance with the law."
Any deviation from the FBI's own regulations, in which ATF processes and investigates NICS
appeals would likely result a decision that is not in accordance with the regulations prescribed by
the AG to implement the Brady Act may well be in violation of the APA.

With all due respect, the statement by Mr. Moore that "the responsibility for appeals fall on the
respective branches," is in direct conflict with the law. This authority is granted specifically to
the FBI or POC states through the above-cited laws and to unilaterally attempt to assign it to
ATF is not appropriate. See Ghattas v. United States, 40 F.3d 281, 287 (8th Cir. 1994) (holding
the refusal of Department of Agriculture's Food and Nutrition Service to consider an alternative
monetary penalty, in which the Secretary has discretion to impose, frustrated Congressional
intent), Gilliland v. F.A.A., 48 F.3d 316, 318 ("When Congress grants a regulator discretion to
choose between suspension and revocation, and a respondent presents fact issues material to the
exercise of that discretion, the agency must hold a hearing and must articulate why it has chosen
to impose the more severe penalty, particularly when the respondent's livelihood is at stake.").
The guidance provided from the NICS Section also delegates said authority to ATF in
contravention of the regulations established by the Attorney General., The Attorney General

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through the regulations did not provide FBI authority to delegate powers to another agency to
implement the Brady Act.

In conclusion, ATF has neither the legal or regulatory authority to process appeals for the
correction of erroneous NICS system information. This authority is clearly and unambiguously
provided to the FBI. Therefore, the guidance provided by the NICS Section was erroneously
provided to ATF and should therefore be formally withdrawn. In any event, ATF will continue
to refer all formal appeals for delayed or denied transactions to the FBI NJCS Section as directed
by the regulation.

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DEPARTMENT OF JUSTICE

FEDERAL BUREAU OF INVESTIGATION

UMBERT v. U.S.A., et al

Case No. 18-1336(U.S. District Court for D.C.)

ATF Gilbert Letter

Excised Copy
U.S. Department of Justice

Federal Bureau of Investigation

Clarksburg. WV 26306

June 3, 2019

Mr. Curtis W. Gilbert


Deputy Assistant Director
Enforcement Programs and Services
99 New York Ave, NE
SN-600
Washington, DC 20226
Dear Mr. Gilbert:

This letter is in response to your June 19, 2018 Memorandum regarding the
processing of National Firearms Act (NFA) appeals by the FBI Criminal Justice Information
Services (CJIS) Division's National Instant Criminal Background Check System (NICS) Section.
The FBI previously stated that the NICS Section is not responsible for processing NF A appeals.
In response, you stated that the Bureau of Alcohol, Tobacco, Firearms and Explosives (ATF)
"has neither the legal or regulatory authority to process appeals for the correction of erroneous
NICS system information as this authority is clearly and unambiguously provided to the FBI."

Further, you stated that ATF processing of NICS appeals would be violative of
both the NICS Regulations and, likely, the Administrative Procedures Act (APA). On this point,
the FBI does not disagree, as the FBI Director is the designated system manager of the NICS.
See 28 C.F.R. § 25.3. However, it is the position of the FBI that ATF NFA transfers do not fall
within the purview of the NICS provisions of the Brady Handgun Violence Prevention Act of
1993 (Brady Act); (now codified, in part, at Title 34, United States Code (U.S.C.), Section
40901) therefore, application and analysis of the NICS Regulations (Title 28, Code of Federal
Regulations (C.F.R.), Section 25.1-25.11) seems unnecessary. In fact, it is the position of the
FBI that the processing of any ATF work1, to include NFA appeals by the NICS Section, pursued
due to the denial of a transfer based upon the results of a NICS background check, runs afoul of
Federal Appropriations laws and the Anti-Deficiency Acts.2.3

1 NFA appeals, Federal Fireanns Licensing Center (FFLC) background checks, Federal Explosives Licensing Center

(FELC) background checks, NFA background checks, or any other ATF-related background checks.
2 Key Appropriations laws can be found at 31 U.S.C. § 1301and31 U.S.C. § lS02(a). Key Anti-Deficiency Act statutes

can be located at 31U.S.C. §1341, §1342, §§ 1349-1351, and§§ ISi 1-1519.


3 See generally, Principles of Federal Appropriations Law (Third Edition, Volume II, January 2004 at page 6-236

" .•. treating a transaction which should be reimbursed as nonreimbursable may result in an improper augmentation. For
example, an agency receives appropriations to do its own work, not that ofanother agency. Accordingly, as a general
proposition, interdepartmental loans of persoMel on a nonreimbursable basis improperly augment the appropriations of
the receiving agency. 65 Comp. Oen. 635 (1986); 64 Comp. Oen. 370 (1985). Such nonreimbursable loans also constitute
a misuse of the detailing agency's appropriation under 31 U.S.C. § 1301 . 8-247347, June 22, 1992."

FBI000630
Mr. Curtis W. Gilbert

Appeals ofNFA denials are not NICS appeals as set forth in the Brady Act.
While the Brady Act provides both administrative and judicial remedies for any person denied a
firearm, this process is limited to those persons the NICS has denied a firearm under subsections
(s) and (t) of Section 922 of the Gun Control Act of 1968 (GCA), as amended, (18 U.S.C. §§
921-931). See 18 U.S.C. § 925A and 34 U. S.C. § 4090l(g). In addition, the remedies set forth in
the Brady Act are limited to transfers where "licensees" have contacted the NICS prior to a GCA
transfer of a fireann. As defined in 34 U.S.C. § 40901(j)(l), the tenn "licensee" does not include
the ATF or ATF Director. It is the position of the FBI that ATF NFA transfers do not fall within
the purview of the NICS provisions of the Brady Act. Rather access is authoriz.ed, via
regulation, to the NICS for purposes unrelated to NICS background checks required by the
Brady Act for non-Brady uses such as NFA transfers. See 28 C.F.R. § 25.6 (j)(2). Nevertheless,
if potential transferees under the NF A were able to avail themselves of the remedies set forth in
the NICS Regulations, the ATF, not the FBI, should be deemed the "denying agency." As the
FBI is not the denying agency, the FBI's NICS appeal process cannot serve as a remedy to
individuals the ATF has denied under the NF A.

The NFA transfer process is administered and enforced by the ATF. The NF A
firearms may be transferred upon application if the transfer, receipt, or possession by the
transferee does not place the transferee in violation of the law. See 26 U.S. C. § 5812(a).
Interpreting 26 U.S.C. § 5812(a), the ATF has mandated contact with the NICS in making the
determination as to whether the transfer, receipt, or possession of a firearm would violate the
law. See 27 C.F.R. § 479.86. Noticeably absent from the NFA and the implementing
regulations, are provisions for appeals of denied transfers or remedies for the erroneous denial of
a transfer. Currently, the FBI only provides recommendations to the ATF based upon the results
of a NICS background check when ATF NFA transfer checks are passed to the FBI. As the ATF
is the "denying agency," NFA transfer appellants would need to contact the ATF, not the FBI.
Since ATF contact with the NICS for NFA transfers was mandated by ATF Regulation (27
C.F.R. § 479.86), and not by the NFA, itself, codification of appeal procedures in the ATF
Regulations (including procedures for NFA transfers denied based upon the search of the NICS)
should be considered and promulgated to rectify this gap. The FBI has given the ATF access to
the NICS to work transactions and view the search results. As the denying agency, the ATF
should determine, based on all of the information in its possession, if the NFA transfer appeal is
upheld or overturned. The current NICS appeal process would not result in resolution of the
NFA appeal in its entirety (as a search of the NICS is only one search authorized as part of an
NFA transfer) or enable the applicant to proceed with the transfer, as the ATF requires the entire
transfer process to be reinstituted by the individual. If an appeal process is established by the
ATF, the FBI would leverage existing means, outside of the NICS process, for updating and
correcting records within its systems when provided with information that requires the correction
or modification of an FBI record.

The FBI will continue to permit the ATF access to the NICS for NFA transfers,
unrelated to NICS background checks, in accordance with 28 C.F.R. § 25.6 G)(2). However, the

FBI000631
Mr. Curtis W. Gilbert

FBI will no longer make recommendations to the ATF as ATF checks should no longer be
processed by the NICS Section.

In conclusion, while the ATF, by way of regulation, has mandated contact with
the NICS in making the determination as to whether the transfer, receipt, or possession of a
firearm would violate the NF A, the ATF has not established appeal procedures for addressing
denied NF A transfer appeals based upon the results of a NICS background check. As this
contact with the NICS for NF A transfers was mandated by ATF Regulation, and not by the NF A,
codification of appeal procedures in the ATF Regulations is the most logical solution. Because
the search of the NICS is only one search authorized as part of an NF A transfer, and the FBI is
not the denying entity, resolution of the NICS portion of any NFA transfer appeal would not
resolve the NF A transfer appeal in its entirety. As a result, for transfers denied under the NFA
by the ATF, based upon the results of a NICS background check, the J\ TF should refrain from
directing appellants to the NICS Section fo r appeal processing. Add itionally, as the ATF is
funded by statute for the work the FBI is currently performing, the FBI will no longer be making
recommendations on ATF work, but rather making the information available to the ATF fo r
adjudication of the transaction.

ln order to facilitate a smooth transition, the NICS Section will be in contact to


arrange a face-to-face meeting with ATF representatives. At that time, the NICS Section will
discuss options and develop a plan fo r transitioning ATF work back to the ATF. The NICS
Section values the partnership with the ATF and remains dedicated to working together in
support of both agency's core missions.

Deputy Assistant Director


Information Services Branch
CJTS Division

1 - Mr. Adam Braverman


Associate Deputy Attorney General
Office of the Deputy Attorney General
U.S. Department of Justice
950 Pennsylvania Avenue, NW, Room 4115
Washington, DC 20530

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DEPARTMENT OF JUSTICE

FEDERAL BUREAU OF INVESTIGATION

UMBERT v. U.S.A., et al

Case No. 18-1336(U.S. District Court for D.C.)

FW NFA Denials

Excised Copy
DELETION CODES

P-1 INFORMATION, THE DISCLOSURE OF WHICH WOULD BE AN UNWARRANTED


INVASION OF PERSONAL PRIVACY.

S. PERSONAL IDENTIFYING INFORMATION RELATED TO LAW ENFORCEMENT


PERSONNEL AND THEIR FAMILY MEMBERS, THE DISCLOSURE OF WHICH IS
ROUTINELY GUARDED FOR SECURITY REASONS.
From: (P-1) CJIS) (FBI)
Sent: Thursday, January 16, 2020 5:16 PM
To: (P-1) CJIS) (FBI)
Subject: FW: NFA Denials

 
 
From: (P-1) (CJIS) (FBI)  (P-1) @fbi.gov>  
Sent: Monday, October 30, 2017 10:40 AM 
To: (P-1) JIS) (FBI) < (P-1) @fbi.gov> 
Subject: RE: NFA Denials 
 
You are correct (just to validate your rhetorical ).  I think the surprising piece is that ATF may have included our 
contact info on a letter to their appellants more recently and maybe (???) we did not know.  I will wait to read the letter, 
talk to  (P-1) nd others before I question that of ATF. 
 
Thank (P-1)
 
(P-1)
 
From (P-1) (CJIS) (FBI)  
Sent: Monday, October 30, 2017 10:37 AM 
To: (P-1) (CJIS) (FBI)  (P-1) @fbi.gov> 
Subject: RE: NFA Denials 
 
Thanks (P-1)   Isn’t ATF the denying agency?  We just make a recommendation, correct?   Rhetorical questions at this 
point.  I look forward to hearing more about this.  We certainly don’t need any more work! 
 
From: (P-1) (CJIS) (FBI)  
Sent: Monday, October 30, 2017 10:34 AM 
To: (P-1) (CJIS) (FBI) < (P-1) @fbi.gov> 
Subject: FW: NFA Denials 
 
(P-1)
 
FYI…It appears we may be processing ATF NFA appeals now which historically we have not done.  Once (P-1) replies 
(and if he doesn’t within a day or so I will contact him) we will set up a meeting to discuss.  Eric has a lot of background 
for others to hear. 
 
(P-1)
 
From:  (P-1) (CJIS) (FBI)  
Sent: Monday, October 30, 2017 10:30 AM 
(P-1) (P-1) (P-1)
To:  (ATF)'  @usdoj.gov>;  (CJIS) (FBI)  (P-1) @fbi.gov> 
Cc: (P-1) (CJIS) (FBI)  (P-1) @fbi.gov>; (P-1) (ATF) < (P-1) @usdoj.gov>; (P-1)
(P-1) CJIS) (FBI) < (P-1) @fbi.gov> 
Subject: RE: NFA Denials 
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FBI000620
 
Good morning (P-1) – 
 
I would like to work within our Section to see if there is anything that we can come up with/offer as a workaround or 
solution to this issue.  May I get a copy of the letter template that you are sending so we are familiar with why this is 
occurring currently?  We will then sit down with our SME’s and mgmt. to see what we can do. 
 
Thank you  (P-1)
 
(P-1)

FBI/CJIS/NICS Business Unit Chief


(P-1) (office)
(S) (mobile)
(P-1) @fbi.gov

 
 
(P-1) (P-1)
From:  (ATF) [mailto: @usdoj.gov]  
Sent: Friday, October 27, 2017 10:53 AM 
To: (P-1) (CJIS) (FBI) < (P-1) @fbi.gov> 
(P-1) (P-1)
Cc (P-1) (CJIS) (FBI)  (P-1) @fbi.gov>; CJIS) (FBI)  (P-1) @fbi.gov>;
(ATF) < (P-1) @usdoj.gov> 
Subject: Re: NFA Denials 
 
(P-1)
 understand FBIs position as we previously spoke on this and I thought we were working collaboratively to identify a 
mechanism to extract originating agency info for NICS denials for purpose code 19 where applicants can be referred. The 
letter associated with restricted firearm denials based solely on a NICS denial was proposed to be amended to merely 
remove FBI appeals section contact info to divert FBI being contacted. Still for NICS background check conducted 
pursuant to 479.86 and a denial is returned the applicant will have to resolve their backgrounds for these over the 
counter NFA firearms transactions. You and I spoke about our agency's position on appeals. As you recommended our 
leadership will speak to yours on this issue at some point in short order. I am back in pocket Monday if you want to 
further discuss.  
 
On Oct 26, 2017, at 8:49 AM, Moore, Eric M. (CJIS) (FBI)  (P-1) fbi.gov> wrote: 
(P-1)

If someone calls in here to ask about an NTN and it show a purpose code for ATF‐15, 16, 18, 19, or 20 
(FELC, FFLC, or NFA) they will be referred to ATF.  NICS, at this time, will not handle any information on 
an ATF case, appeal, reason for denial, etc.  Hopefully, you have corrected the NFA denial letter to stop 
referring them to us and these are just the past ones contacting us. 
  
(P-1)
FBI NICS Section 
ATF Liaison 
Phone:  (P-1)
Fax:   (P-1)
Cell:  (S)
  
Ability is what you are capable of doing. 
Motivation determines what you do. 
Attitude determines how well you do it. 
Lou Holtz 
  
2
FBI000621
  
This message has been transmitted to you by the FBI Criminal Justice Information 
Services Division’s National Instant Criminal Background Check System 
Section.  The message, along with any attachments, is to be considered 
confidential and legally privileged.  No part of it is to be disseminated or 
reproduced without written consent of the sender.  If you are not the intended 
recipient of this message, please destroy it promptly without any retention, 
dissemination, or reproduction (unless required by law), and please notify the 
(P-1)
sender of the error immediately by separate e‐mail or by calling   
  
(P-1) (P-1)
From (ATF) [mailto @usdoj.gov]  
Sent: Thursday, October 26, 2017 8:41 AM 
To: (P-1) (CJIS) (FBI) < (P-1) @fbi.gov> 
Subject: Re: NFA Denials 
  
(P-1)
  
If the denial is based on a straight background check and not due to the other reasons a NFA application 
will be denied there will be no recourse with NFA. They will need to resolve the issue with the 
originating ORI or FBI. For now the 4500 number is sufficient but like I said there will be no recourse 
within NFA for backgrounds. 
 
On Oct 26, 2017, at 8:30 AM, (P-1) (CJIS) (FBI) < (P-1) @fbi.gov> wrote: 

(P-1)
We are still getting multiple calls daily on NFA denials wanting to know how to 
appeal.  These appellants are going to be referred to the NFA main number (304) 616‐
4500, unless there is another number you prefer them referred to. 
  
(P-1)

ATF Liaison 
Phone:  (P-1)
Fax:  (P-1)
Cell:   (S)
  
Ability is what you are capable of doing. 
Motivation determines what you do. 
Attitude determines how well you do it. 
Lou Holtz 
  
  
This message has been transmitted to you by the FBI Criminal Justice 
Information Services Division’s National Instant Criminal Background 
Check System Section.  The message, along with any attachments, is 
to be considered confidential and legally privileged.  No part of it 
is to be disseminated or reproduced without written consent of the 
sender.  If you are not the intended recipient of this message, 
please destroy it promptly without any retention, dissemination, or 
reproduction (unless required by law), and please notify the sender 
of the error immediately by separate e‐mail or by calling  (P-1)
(P-1)  

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