So.
Is that to say that anything concerning inert ordnance is illegal if it does not have a hole drilled into it?
The definition of a "destructive device" is found in
26 U.S.C. 5845(f). The definition reads as follows:
(1) any
explosive,
incendiary, or
poison gas, (A)
bomb, (B)
grenade, (C)
rocket having a propellant charge of more than 4 ounces, (D)
missile having an explosive charge of more than 1/4 ounce, (E)
mine or (F) similar device. (2) Any weapon by whatever name known which will, or which may be readily converted to, expel a projectile by the action of an explosive or other propellant, the barrel or barrels of which have a bore of more than one-half inch in diameter (.50 inches or 12.7mm), except a shotgun or shotgun shell which the Secretary finds is generally recognized as particularly suitable for sporting purposes; and (3) Any combination of parts either designed or intended for use in converting any device into a destructive device as defined in subparagraphs (1) and (2) and from which a destructive device may be readily assembled.
Basically, if there are no explosives or "combination of parts including the explosives" and you are not actively seeking explosives or the ability to manufacture explosives -the BATFE does not care.
If they did, everyone in possession of essentially anything explosives could be placed into would be in violation. This includes pipes, pop cans or mail boxes. (Without holes drilled in them, of course.)
If your explination is true, then the BATFE is in serious need of revision, and a new method of enforcement. Over the past five years there is virtually not a antique show, mall or store; gun show flea market or swap meet I have not encountered a piece of ordnance minus it's explosives.
Here is just the SMALL STUFF I have accumulated by visiting the aforementioned places over the past eleven months. I label my scary stuff as being "empty or inert" and my neighbors are informed of what my hobby consists of. I am not worried.