SUPERIOR COURT OF NEW JERSEY
APPELLATE DIVISION
DOCKET NO. A-1682-11T1
IN THE MATTER OF THE APPLICATION
FOR A NEW JERSEY PERMIT TO CARRY
A HANDGUN BY RICHARD PANTANO.
__________________________________
Submitted October 23, 2012 - Decided
Before Judges Messano, Ostrer and Kennedy.
On appeal from the New Jersey Superior
Court, Law Division, Monmouth County, G.P.
App. No. 2011-01.
Evan F. Nappen, P.C., attorneys for appellant
Richard Pantano (Richard V. Gilbert, on the
brief).
Christopher J. Gramiccioni, Acting Monmouth
County Prosecutor, attorney for respondent
State of New Jersey (Patricia B. Quelch,
Special Deputy Attorney General/Acting
Assistant Prosecutor, of counsel and on the
brief).
The opinion of the court was delivered by
OSTRER, J.A.D.
Richard Pantano appeals from the trial court's October 31,
2011 denial of his application for a permit to carry a firearm
under N.J.S.A. 2C:58-4. The Manalapan Township Police Chief had
approved Pantano's application in December 2010 and the State
appealed. In a written opinion, Judge Francis P. DeStefano
APPROVED FOR PUBLICATION
February 22, 2013
APPELLATE DIVISION
February 22, 2013
2 A-1682-11T1
concluded after a testimonial hearing that Pantano had not
demonstrated "a justifiable need to carry a handgun." N.J.S.A.
2C:58-4(d). Pantano asserts the court erred in finding no
justifiable need, and, in the alternative, he argues the
justifiable need requirement infringes his right to bear arms
under the Second Amendment. U.S. Const. amend. II. We affirm.
I.
We first address Pantano's challenge to the court's finding
there was no justifiable need. We discern the following facts
from the record.
Pantano owns a landscape supply business with annual gross
receipts of $12 million, of which close to $2 million is paid in
cash. At the hearing, Pantano testified about the typical
transaction in his business:
[A] contractor would come in and order,
place an order for the materials he would
need. Most of the time the materials are
paver materials which are heavy,
neighborhood of 2,000 pounds per pallet, so
it's unrealistic for the contractor to be
able to pick up his material. So our
delivery system is what we use to take the
materials to the contractor.
Most of the contractors today are
working on very tight budgets, and they're
working with cash much more than ever. So
we are now delivering the product a lot of
times after hours when the contractors
receive their deposits from the homeowners,
[who] tend to be home between 5:00 and 7:00
p.m.
3 A-1682-11T1
Pantano explained that he personally delivered materials.
He would exchange paperwork and receive cash payments, sometimes
ranging between $7000 to $18,000, which he would count in front
of the customer and the customer's employees, some day-workers
with whom even the customer was not familiar. He testified that
while most of his deliveries were in Monmouth, Ocean and
Middlesex Counties, he traveled throughout the State and
sometimes outside it. He sought the permit to protect himself —
as opposed to his cash — from a potential robbery. His concern
was heightened by the state of the economy; he believed people
were more desperate and willing to resort to crime. He was also
concerned because many individuals, some strangers, were aware
of when and where he would be in possession of large amounts of
cash, creating repeated opportunities for a robbery.
Pantano explained that his willingness to "work[ ] with the
contractor" by accepting cash and making deliveries at the
customers' convenience, which many companies did not do, helped
boost his business's growth. He stated that if he required
payment in advance, by non-cash means, or at his office after
delivery, some customers either would decline to do business
with him or fail to pay him for the goods sold. He deposited
cash at his bank as many as two or three times a day. Pantano
asserted it would be impracticable to hire a security guard
4 A-1682-11T1
because he could not predict when a contractor would call for an
immediate delivery of supplies.
Pantano admitted that he had not been attacked nor had he
been specifically threatened. However, his father was once the
victim of an armed robbery and was stabbed.1 Pantano also
testified about an apparent trespasser at his business four
years earlier. It was dark, around 7:30 p.m., and he had
returned from a delivery and a cash receipt. Pantano recounted:
I had just finished up my paperwork and
one of my managers drove by and saw the
lights on in the office so he had stopped in
on me. As he approached the office he heard
all kinds of scattling and stuff getting
knocked over. At that point I happened to
be walking out, and he said, Hey, hey, hey,
someone's behind the building.
Turns out there was somebody or persons
apparently hiding behind the building, and
when he approached, they were startled.
They knocked over a whole bunch of material
and fled. So we called Manalapan Police
Department. They responded and they brought
the dog out. The dog had gone on the scent
trail, tracked it back through our nursery
in the fields, and lost them somewhere.
Pantano testified that the police chief, who was a personal
friend, had recommended he apply for the permit. "He actually
1 Judge DeStefano limited Pantano from testifying about the armed
robbery of his father, as the judge stated he was already aware
of the incident. "I heard the story. I understand his father
was robbed, he was knifed." In his decision, the judge noted
that Pantano's father "ran a similar business."
5 A-1682-11T1
was the one that told me I should apply. He understands my
business, he's seen it grow. He understands it. He knows me
personally, and he recommended that I apply for a handgun
permit."
Judge DeStefano found that the nature of Pantano's practice
of receiving large quantities of cash under the circumstances
did not create a justifiable need. The judge also relied on the
regulations defining "justifiable need" to mean "urgent
necessity for self-protection, as evidenced by specific threats
or previous attacks which demonstrate a special danger to the
applicant's life that cannot be avoided by means other than by
issuance of a permit to carry a handgun." See N.J.A.C. 13:54-
2.4(d). Citing In re Preis, 118 N.J. 564 (1990), he explained
"[g]eneralized fears for personal safety are inadequate, as is
the need to protect property alone." The judge found the
apparent trespassing incident, and the robbery and assault of
Pantano's father, did not alter his conclusion.
Petitioner has f[a]iled to provide the court
with any specific threats, concerns, or
previous attacks that constitute an "urgent
need for self protection." The incident
that was alleged to occur four years ago is
insufficient to establish a justifiable need
to carry a handgun. It is unclear what the
intentions of this alleged trespasser were
and this Court is not going to base its
analysis on purely speculative claims.
Petitioner needs to provide specific threats
and simply asserting that an unknown person
6 A-1682-11T1
was outside the building after business
hours is not enough. In addition,
petitioner's concerns for his safety that
stem from the unfortunate incident with his
father do not rise to the level of a
"justifiable need." Petitioner's concerns,
although genuine, stem from the attack on
his father. There is nothing to show that
such attack is imminent or likely to happen
to petitioner himself. Therefore, petitioner
does not have any justifiable need to secure
a permit to carry.
On appeal, Pantano argues the court erred in rejecting his
claim of justifiable need. In particular, he argues the court
should have deferred to the police chief's decision to approve
his application. We disagree.
We are bound to accept the trial court's fact findings if
supported by substantial credible evidence. In re Return of
Weapons to J.W.D., 149 N.J. 108, 116-17 (1997). However, we
review the trial court's legal determinations de novo.
Manalapan Realty, L.P. v. Twp. Comm. of Manalapan, 140 N.J. 366,
378 (1995); In re Sportsman's Rendezvous Retail Firearms
Dealer's License, 374 N.J. Super. 565, 574-75 (App. Div. 2005)
(stating court exercises de novo review of trial court's
statutory construction of N.J.S.A. 2C:58-2).
Judge DeStefano correctly described the legal test for
establishing justifiable need. Pantano must show an urgent
necessity to carry a handgun for self-protection. Preis, supra,
118 N.J. at 571; Siccardi v. State, 59 N.J. 545, 557 (1971).
7 A-1682-11T1
"The requirement is of specific threats or previous attacks
demonstrating a special danger to the applicant's life that
cannot be avoided by other means." Preis, supra, 118 N.J. at
571. The court must consider the justifiable need on a case-bycase
basis. Id. at 576.
We discern no grounds to disturb Judge DeStefano's finding
that Pantano failed to show justifiable need. Pantano attempts
to distinguish his situation from those found insufficient in
Siccardi, supra; In re Application of "X", 59 N.J. 533 (1971);
In re Application of Borinsky, 363 N.J. Super. 10 (App. Div.
2003); and Doe v. Dover Twp., 216 N.J. Super. 539 (App. Div.
1987). Pantano argues that in those cases, the applicant had
available an alternative to carrying a handgun for selfprotection,
by obtaining a police escort as in Siccardi and
Application of "X", or altering the applicant's activities as in
Borinsky, or the applicant, as in Doe, simply did not face the
same level of threat as did Pantano.
We are unpersuaded. Pantano was also able to avoid the
perceived risk of robbery. His situation did not "differ
materially" from that of other business-owners "who carry
substantial funds on their persons, often in high crime areas."
Application of "X", supra, 59 N.J. at 534. Pantano readily
conceded that his competitors do not accommodate customers'
8 A-1682-11T1
reported desire to pay cash for deliveries at odd hours.
Moreover, his claim that retaining a security escort was
infeasible was conclusory. He presented no evidence that his
business, which grossed over $12 million a year, could not
reasonably afford protective services. There also was
sufficient support in the record for Judge DeStefano's
conclusion that Pantano faced no specific threat, notwithstanding
the trespass incident and the robbery of his father.
We also reject Pantano's argument that the trial court
erred in not extending sufficient deference to the police
chief's decision to approve the permit. Pantano relies on In re
Application of Boyadjian, 362 N.J. Super. 463 (App. Div.),
certif. denied, 178 N.J. 250 (2003). We held that while a trial
court reviews de novo a police chief's denial of a firearms
purchaser identification card (FPIC), the court "must,
nevertheless act with appropriate regard for the local interest
factor to the extent legitimately reflected in the police
chief's denial, as well as for the chief's 'investigative
experience and . . . expertise[.]'" Id. at 476 (quoting Weston
v. State, 60 N.J. 36, 46 (1972)).
For several reasons, Pantano's argument is inapposite.
First, the chief did not testify nor was the court apparently
presented with the chief's reasons for approving the
9 A-1682-11T1
application. Thus, there was no evidence of a reasoned exercise
of experience and expertise for the court to consider. Cf.
Weston, supra, 60 N.J. at 46 (discussing that typically, the
chief would testify as to the reasons for denying a FPIC).
Second, deference is unwarranted under the circumstances.
Pantano claimed the chief was a personal friend, was aware of
information about Pantano's business outside the record of the
permit application, and recommended that Pantano apply for the
permit. While we recognize the chief did not testify, Pantano's
undisputed assertions provide reasonable grounds to question the
decision-maker's objectivity. Cf. Brady v. Dep't of Personnel,
149 N.J. 244, 256 (1997) (stating that deference to agency
decision is limited if agency decision based on undisclosed
evidence); Kane Props., L.L.C. v. City of Hoboken, 423 N.J.
Super. 49, 65 (App. Div. 2011) (stating that deference not due a
municipal decision if "proceedings [were] tainted by conflict of
interest"), certif. granted, 209 N.J. 597 (2012).
Third, the process for granting a FPIC, discussed in
Boyadjian, differs from the process for granting a permit to
carry, as requested here. The chief is authorized to issue the
FPIC, subject to court action if there is an appeal. See
N.J.S.A. 2C:58-3(d). By contrast, although the chief may
approve an application for a permit to carry, only the court may
10 A-1682-11T1
actually issue the permit. See N.J.S.A. 2C:58-4(d); see also
Preis, supra, 118 N.J. at 569 (referring to N.J.S.A. 2C:58-4,
"So concerned is the Legislature about this licensing process
that it allows only a Superior Court judge to issue a permit,
after applicants first obtain approval from their local chief of
police.").
II.
Pantano also renews before us his argument that application
of the justifiable need requirement infringed his constitutional
right to bear arms.
Judge DeStefano rejected Pantano's claim. He concluded New
Jersey courts "have failed to extend the holding of [District of
Columbia v.] Heller [554 U.S. 570, 128 S. Ct. 2783, 171 L. Ed.
2d 637 (2008)] beyond its possession within the home for self
defense," citing In re Dubov, 410 N.J. Super. 190 (App. Div.
2009), Crespo v. Crespo, 408 N.J. Super. 25 (App. Div. 2009),
aff'd, 201 N.J. 207 (2010), and two unpublished decisions. In
Heller, the United States Supreme Court overturned a District of
Columbia statute that totally prohibited handgun possession in
the home. Heller, supra, 554 U.S. at 635, 128 S. Ct. at 2821-
22, 171 L. Ed. 2d at 683. The Supreme Court later held that the
Second Amendment right is "fully applicable" to the states
through the Fourteenth Amendment. McDonald v. City of Chicago,
11 A-1682-11T1
___ U.S. ___, 130 S. Ct. 3020, 3026, 177 L. Ed. 2d 894, 904
(2010). Judge DeStefano concluded, "Since the challenged
statute only regulates the carrying of a handgun outside the
home, it does not infringe upon any conduct protected by the
Second Amendment[.]"
On appeal, in urging us to find a constitutional violation,
Pantano relies on Woollard v. Sheridan, 863 F. Supp. 2d 462
(D. Md. 2012), and its interpretation of Heller, supra. The
Woollard court held that Heller "left unanswered" whether the
Second Amendment's protections extend beyond the home, "'where
the need for defense of self, family, and property is most
acute.'" Woollard, supra, 863 F. Supp. 2d at 467 (quoting
Heller, supra, 554 U.S. at 628, 128 S. Ct. at 2817, 171 L. Ed.
2d at 679). The Woollard court found that the Second Amendment
right to bear arms applied outside the home, that state
limitations on the right to carry were subject to intermediate
scrutiny, and that Maryland's right-to-carry law, which arguably
imposed less stringent requirements than N.J.S.A. 2C:58-4,
failed to survive intermediate scrutiny. Woollard, supra, 863
F. Supp. 2d at 468, 474. Pantano urges us to reach a similar
result here.
We decline to do so. We begin with the premise that
"statutes are presumed constitutional[.]" Whirlpool Properties,
12 A-1682-11T1
Inc. v. Dir., Div. of Taxation, 208 N.J. 141, 175 (2011). We
also hesitate to find a constitutional infirmity absent clear
expression of the law from the United States Supreme Court,
particularly where it would disturb settled law. Id. at 176
(declining to abandon legal standard, despite "measure of
uncertainty," where there was "no ready or clear indication that
the [united States] Supreme Court has signaled its
abandonment").
In Dubov, supra, we concluded that Heller did not affect
the constitutionality of N.J.S.A. 2C:58-3©(5).
The issue in Heller was whether the Second
Amendment protects only the right to possess
and carry a firearm in connection with
military service or also protects an
individual's right to possess a firearm for
other purposes such as self-defense and
hunting. The Court held that the Second
Amendment protects an individual right to
keep and bear firearms, and that this
holding required invalidation of District of
Columbia statutes that totally prohibited
handgun possession in the home and required
any lawful firearm in the home to be
disassembled or bound by a trigger lock,
thus rendering it inoperable.
However, the Court expressly indicated
that its holding did not require
invalidation of statutes that require a
license to purchase or possess a firearm.
In fact, the Court noted that "[r]espondent
conceded at oral argument that he does not
'have a problem with . . . licensing, and
that the District's law is permissible so
long as it is 'not enforced in an arbitrary
and capricious manner[,]'" thus obviating
13 A-1682-11T1
the need for the Court to address the
validity of the specific provisions of the
District of Columbia's gun licensing
statutes. Therefore, Heller has no impact
upon the constitutionality of N.J.S.A.
2C:58-3©(5).
[410 N.J. Super. at 196-97 (citations
omitted).]
By the same reasoning, Heller would not affect the
constitutionality of N.J.S.A. 2C:58-4. See Crespo, supra, 408
N.J. Super. at 42 ("[T]he majority opinion [in Heller] should
not be taken 'to cast doubt on longstanding prohibitions on the
possession of firearms by felons and the mentally ill, or laws
forbidding the carrying of firearms in sensitive places such as
schools and government buildings[.] . . .'") (emphasis added)
(quoting Heller, supra, 554 U.S. at 626, 128 S. Ct. at 2816-17,
171 L. Ed. 2d at 678).
The federal district court in New Jersey has concluded that
our state law governing permits to carry handguns does not
"burden any protected conduct" under the Second Amendment.
Piszczatoski v. Filko, 840 F. Supp. 2d 813, 829 (D.N.J. 2012).
The court concluded that Heller addressed only the right to bear
arms in the home.
Heller's recognition of the right to "bear"
arms as a right to "carry" does not
inexorably lead to the conclusion that there
is a general right to carry arms outside the
home. Instead, this definition simply serves
to emphasize the nature of the right as an
14 A-1682-11T1
individual right to carry "for a particular
purpose - confrontation." Heller, 554 U.S.
at 584, 128 S. Ct. 2783. Heller found that
the individual right to carry a firearm for
confrontation was obviously not an
"unlimited" right to carry "for any sort of
confrontation," but included a right to
carry a handgun "for self-defense in the
home." Id. at 595, 636, 128 S. Ct. 2783.
The District of Columbia could not require
that a handgun be kept inoperable in the
home and could not "prevent a handgun from
being moved throughout one's house." Id. at
584, 128 S. Ct. 2783 (quoting Parker v.
District of Columbia, 478 F.3d 370, 400
(D.C. Cir. 2007)).
The language of Justice Scalia's
majority opinion deliberately limited the
scope of the right recognized to the home.
[id. at 821.]
Other courts have reached the same conclusion. See, e.g.,
Williams v. State, 10 A.3d 1167, 1169, 1177 (Md. 2010) (holding
that a statute prohibiting carrying a handgun outside the home
without a permit was not at odds with Heller or McDonald), cert.
denied, ___ U.S. ___, 132 S. Ct. 93, 181 L. Ed. 2d 22 (2011);
Commonwealth v. Perez, 952 N.E.2d 441, 451 (Mass. App. Ct. 2011)
("The Second Amendment does not protect the defendant in this
case because he was in possession of the firearm outside his
home."); see also Dorr v. Weber, 741 F. Supp. 2d 993, 1004-05
(N.D. Iowa 2010) ("The Court's recognition, in Heller, that
prohibitions on carrying concealed weapons were lawful was in
full accord with long-standing Supreme Court precedent.")
15 A-1682-11T1
(citing Robertson v. Baldwin, 165 U.S. 275, 17 S. Ct. 326, 41 L.
Ed. 715 (1897)).
Other courts have observed that the application of the
Second Amendment to possession of firearms outside the home is
at least uncertain. See, e.g., Kachalsky v. Cnty. of
Westchester, 701 F.3d 81, 89 (2d Cir. 2012) ("What we know . . .
is that Second Amendment guarantees are at their zenith within
the home. Heller, 554 U.S. at 628-29. What we do not know is
the scope of that right beyond the home and the standards for
determining when and how the right can be regulated by a
government."), petition for cert. filed sub nom. Kachalsky v.
Cacace, 81 U.S.L.W. 3411 (U.S. Jan. 8, 2013) (No. 12-845);
Hightower v. City of Boston, 693 F.3d 61, 72 n.8 (1st Cir. 2012)
(declining to resolve the issue, but noting varying approaches
to it among state and federal courts); United States v.
Masciandaro, 638 F.3d 458, 475 (4th Cir.) (stating "[t]here may
or may not be a Second Amendment right in some places beyond the
home," and that "[o]n the question of Heller's applicability
outside the home environment, we think it prudent to await
direction from the Court itself"), cert. denied, 132 S. Ct. 756,
181 L. Ed. 2d 482 (2011); United States v. Marzzarella, 614 F.3d
85, 92 (3d Cir. 2010) (noting that much of the scope of the
Second Amendment right remains unsettled).
16 A-1682-11T1
The Second Circuit in Kachalsky proceeded to assume that
New York's law burdened the Second Amendment right to bear arms,
and considered whether it passed constitutional scrutiny. Like
New Jersey's statutory requirement of "justifiable need,"
N.J.S.A. 2C:58-4(d), the New York law requires a person seeking
an unrestricted permit to carry a concealed handgun in public to
show "proper cause," N.Y. Penal Law § 400.00(2)(f). New York
courts have construed that law to require proof of a "'special
need for self-protection distinguishable from that of the
general community or of persons engaged in the same
profession.'" Kachalsky, supra, 701 F.3d at 92 (citation
omitted). Despite the burden placed on the permit applicant,
the court held New York's "proper cause" requirement was
constitutional after applying an intermediate level of scrutiny.
Id. at 93-101.2 The court held, "Restricting handgun possession
in public to those who have a reason to possess the weapon for a
lawful purpose is substantially related to New York's interests
2 We recognize that the Seventh Circuit Court of Appeals recently
held that the Second Amendment extends to the right to carry a
handgun outside the home. Moore v. Madigan, ___ F.3d ___, ___
(7th Cir. 2012) (slip op. at 28-29). In setting aside an
Illinois law that banned concealed carrying of weapons, the
court contrasted the Illinois law with New York's law held
constitutional in Kachalsky. Id. at 25-26.
17 A-1682-11T1
in public safety and crime prevention." Id. at 98. The same
may be said of New Jersey's law and interests.
In sum, given the presumption of our law's
constitutionality, the lack of clarity that the Supreme Court in
Heller intended to extend the Second Amendment right to a state
regulation of the right to carry outside the home, and the
Second Circuit's explicit affirmation of a law similar to ours,
we affirm Judge DeStefano's determination that Pantano's
constitutional rights were not infringed.
Affirmed.