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Even though the BATF classifies black powder as an explosive, mostly because of some arcane testing criteria, it is functionally a propellent. If it was me that made the rules, I would either exempt sporting black powder from being an explosive or change the testing criteria so it doesn't include black powder.
Sure, you can make a pipe bomb with it but you can also do that with Pyrodex, 777, or even Bullseye. Actually, you can fill a pipe with water, throw it in a bonfire, and you better be far far away when it bursts.
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