Some Denied Persons Are Subsequently Determined by the ATF Not to Be Prohibited
After performing additional research, the ATF frequently determines that the denied individual is not prohibited from possessing a firearm. Generally this occurs because the FBI could not readily determine the individual's prohibited status due to inaccurate and incomplete automated state records.
We found that 69 of the 197 (35 percent) delayed denials and 16 of the 200 (8 percent) standard denials in our sample were applicants who should not have been prohibited from purchasing a firearm.34 Special agents in each of the four divisions we visited stated that this was a common occurrence. Although the investigative files did not specify why the subjects in our sample were found not to be prohibited, our discussions with ATF personnel identified several reasons why this generally occurs: (1) the subject's firearm rights had been restored under state law, (2) the subject's prohibition for a misdemeanor crime of violence did not meet the federal criteria, or (3) a protective order had expired or was about to expire. These circumstances are discussed in detail in the following sections.
Firearm Rights Have Been Restored
Currently, when a federal crime is the prohibiting factor, the person's firearm rights can only be restored through a presidential pardon.35 In relation to persons prohibited from possessing firearms due to a criminal conviction, the GCA states: "Any conviction which has been expunged, or set aside or for which a person has been pardoned or has had civil rights restored shall not be considered a conviction for purposes of this chapter, unless such pardon, expungement, or restoration of civil rights expressly provides that the person may not ship, transport, possess, or receive firearms."36
All but two states have provisions for restoring firearm rights.37 Firearm rights are restored automatically or through application. The conditions for restoration vary greatly among the states by age (juveniles versus adults), type of crime, and the time frame between release from prison or parole and restoration of rights. In some states, restoration rights specifically apply only to convicted felons, which may result in a paradoxical situation in which someone convicted of a misdemeanor crime of domestic violence is permanently barred from owning a firearm, while someone who kills his spouse has his firearm rights restored after serving his sentence.
Twenty-one states automatically restore firearm rights upon release from prison or completion of parole.38 Forty-five states have provisions for restoring firearm rights through application.39 A person, after a specified waiting period in which no additional crimes have been committed, can submit an application to the appropriate authority for restoration. Again, the conditions vary widely among the states.
Because these provisions affect the person's right to possess a firearm, it is important for FBI NICS examiners, Brady Operations Branch specialists, NICS coordinators, and ATF special agents to be familiar with them. Automatic restorations should readily be identified by FBI NICS examiners and Brady Operations specialists. Although we were unable to verify employee expertise in applicable state law, FBI NICS and Brady Operations Branch management assured us that their employees, who are assigned cases for particular states, have expertise in the applicable state laws. Because it is difficult for FBI NICS management to ensure that the automatic restoration provisions are taken into account when determining whether to deny a firearm to a person, the ATF should report exceptions back to the FBI. Currently there is no mechanism to do so.
Restoration of rights through application is much more difficult for the FBI NICS examiner to ascertain. According to FBI NICS management, states are responsible for entering the names of persons whose rights have been restored into one of the criminal databases (III or NCIC). If this is properly done, the NICS check should identify not only the prohibiting factor, but also the restoration. However, considering the inaccessibility and incompleteness of some state criminal history records, it is unlikely that restoration information will be identified during the NICS check.40