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That's not the case for the DOT. They've done extensive testing in order to set the criteria for classification. It begins with testing the formulated compound by an independent lab. Then, the packaged device/product is tested to destruction according to specific methods at an independent lab with a DOT representative present. The testing lab makes its recommendation for classification to the DOT who authorize shipping. This whole process isn't cheap....and often the ones doing the codifying have no idea what they're doing.
The quantity of "explosive" or flammable solid, and the separation of the pieces, make a huge difference if something catches on fire. Will it self extinguish without propagating? Will it burn through and propagate to the next item in the box or load? If so, how fast does that happen? Will it cause a mass explosion with projectiles? Or will it detonate with immediate propagation to everything in the box or load?
As John/Bat-Mite said, there has to be a dividing line someone. Unlike the ATFE, the DOT/PHMSA is based on the scientific method and covers a complex range of stuff that ships every day.