Well, pouring black powder in a pan or container under your rocket is constructing a pyrotechnic device. And it is not a legal use of the black powder. This has been discussed and explained over and over and is one reason for the BP exemption in the Enzi bill (whichever version of the bill you wish to read). of course, I don't think the Enzi bill allowed for use of pans o'powder, but reading it you could consider it an igniter. Of course a rocket could only "carry" up to .75 ounce of BP charge, but it says nothing about prohibiting the use of all 2 pounds of BP under the rocket as an "igniter". Perhaps the Enzi bill will open the floodgates for "mortar launchers" - a natural extension of the piston launcher or closed breech (is that breech or breach?).
-Fred Shecter NAR 20117