Title: MECIKALSKI v. OFFICE OF THE AG

State: wyoming

Issuer: Wyoming Supreme Court

Document:

MECIKALSKI v. OFFICE OF THE AG2000 WY 1002 P.3d 1039Case Number: 99-183Decided: 04/21/2000Supreme Court of Wyoming
 
Bonnie MECIKALSKI, 
Appellant (Petitioner), v.The OFFICE OF the ATTORNEY GENERAL, DIVISION 
OF CRIMINAL INVESTIGATION, Appellee (Respondent).

Appeal from the District 
Court, Albany County, Jeffrey Donnell, J.

Representing 
Appellant: Robert T. Moxley of Gage 
& Moxley, Cheyenne, WY.Representing Appellee: Gay Woodhouse, 
Attorney General; Paul Rehurek, Deputy Attorney General; D. Michael Pauling, 
Senior Assistant Attorney General; and Bryan A. Skoric, Assistant Attorney 
General.

Before 
LEHMAN, C.J., and THOMAS, MACY, GOLDEN, and HILL, JJ.

HILL, 
Justice.

[¶1] Appellant, 
Bonnie Mecikalski (Mecikalski), seeks review under W.R.A.P. 12.11 of an order of 
the district court affirming a finding by the Attorney General, Division of 
Criminal Investigation (DCI), that her application for a concealed firearm 
permit be denied.

[¶2] We 
affirm.

ISSUES

[¶3] Mecikalski 
raises these issues in her brief1 and reply 
brief:

I. Must the term 'danger 
to self or others,' a statutory term long connoting mental illness, enacted as a 
limitation upon concealed weapons rights, be given the same meaning as it has 
been afforded in the other statutes where it has previously been utilized by the 
legislature?

II. Under Wyoming's 
"shall issue' concealed carry weapons law, what is the legal threshold of 
evidence, sufficient to sustain the finding of a 'reasonable belief' that an 
applicant for concealed weapon rights constitutes a 'danger to herself or 
others?'

III. Can a finding that a 
citizen is a "danger to herself or others' rest solely upon speculation, 
hearsay, innuendo, and extrastatutory factors; or must it pass objective 
muster?

[IV]. Where agency action 
is informal, should not the statutory scheme and its implementation be the sole 
focus of inquiry on judicial review?

[V.] Can 'relevant 
factors' be found outside the four corners of the statute, when applicants for 
concealed carry permits may be disqualified only on enumerated 
grounds?

[VI.] Can a statutory 
scheme for permit application and evaluation which takes place 'off the record' 
be upheld where "fact finding' occurs in the absence of procedure, articulated 
standards, or express grant of authority?

[¶4] DCI 
abbreviates the issue to this single statement:

Was the decision by the 
Division of Criminal Investigation to deny appellant a concealed weapon permit 
arbitrary, capricious, an abuse of discretion, or otherwise not in accordance 
with law?

INTRODUCTION

[¶5] Because the 
issues raised by Mecikalski in this appeal are couched in terms of a "right" to 
bear arms, we deem it essential to set out a bit of history with respect to the 
"privilege" to carry a concealed weapon.2 The 
Constitution of the United States does not grant a right to bear arms: "A well 
regulated Militia, being necessary to the security of a free State, the right of 
the people to keep and bear Arms, shall not be infringed." U.S. Const. amend. 
II. The United States Supreme Court has construed the Second Amendment (in 
conjunction with the Tenth Amendment) as not affecting the right of a citizen to 
bear arms. It means no more than that the right may not be infringed by Congress 
and constrains the federal government but not the several states. U.S. v. 
Cruikshank, 92 U.S. 542, 553, 23 L. Ed. 588 (1875); Presser v. Illinois, 116 U.S. 252, 265, 6 S. Ct. 580, 29 L. Ed. 615 (1886).

[¶6] Wyoming has 
a parallel constitutional provision: "The right of citizens to bear arms in 
defense of themselves and of the state shall not be denied." Wyo. Const. art. 1, 
§ 24. However, contemporaneously with adoption of the Wyoming Constitution, the 
legislature enacted this statute: "Every person, not being a traveler, who shall 
wear or carry any dirk, pistol, bowie-knife, dagger, sword-in-cane or any other 
dangerous or deadly weapon concealed, or who shall carry or wear any such weapon 
openly, with the intent or avowed purpose of injuring his fellow-man, shall be 
fined in any sum not exceeding one hundred dollars." 1890 Wyo. Territorial Sess. 
Laws, Ch. 73 § 96 (11th Legislative Assembly). The statute prohibiting the 
carrying of concealed weapons has undergone many revisions over the years, and 
we shall set out the details of the current version of that statute in a later 
section of this opinion. We also note at this juncture that we have held that a 
statute prohibiting the carrying of concealed weapons is constitutional under 
Wyoming's right to bear arms provision. State v. McAdams, 714 P.2d 1236 (Wyo. 
1986).

[¶7] Much like a 
driver's license, a permit to carry a concealed firearm is a "privilege" and not 
a "right." See Griess v. Office of the Attorney General, 932 P.2d 734, 739 (Wyo. 
1997); 94 C.J.S. Weapons § 11 (1956); Glasrud v. City of Laramie, 934 P.2d 1242, 1246 (Wyo. 1997); Moreno v. Department of Revenue & Taxation, 775 P.2d 497, 
499 (Wyo. 1989); Hanson v. State, 673 P.2d 657, 658 (Wyo. 1983); Eastwood v. 
Wyoming Highway Department, 76 Wyo. 247, 256, 301 P.2d 818, 821 (1956); State v. 
Mertz, 258 Kan. 745, 907 P.2d 847, 857 (1995); and 7A Am.Jur.2d Automobiles and 
Highway Traffic § 109 (1997). Just as one may not drive an automobile without a 
license, Wyo. Stat. Ann. § 31-7-136 (LEXIS 1999), one may not carry a concealed 
firearm without a permit. Wyo. Stat. Ann. § 6-8-104 (a) (LEXIS 1999).3

[¶8] Immediately prior to 
the adoption of the latest version of the concealed firearm permit statute, the 
predecessor statute provided:

§ 6-8-104. Wearing or 
carrying concealed weapons; penalties; exceptions; 
permits.

(a) A person who wears or 
carries a concealed deadly weapon is guilty of a misdemeanor punishable by a 
fine of not more than seven hundred fifty dollars ($750.00), imprisonment in the 
county jail for not more than six (6) months, or both, 
unless;

(i) The person is a peace 
officer; or

(ii) The person possesses 
a permit under subsection (b) of this section.

(b) A county sheriff may 
issue permits to travelers, merchant police, private detectives or other persons 
whose work, vocation or profession requires them to carry a weapon and who the 
sheriff believes are qualified, taking into account the person's general 
reputation and previous criminal record, the permits shall be issued for a three 
(3) year period and may be renewed for successive three (3) year periods. The 
sheriff may revoke a permit if the conduct of the permitee is contrary to the 
best interests of the state or its political subdivisions.

Wyo. Stat. § 6-8-104 
(1983).

[¶9] Wyo. Stat. 
Ann. § 6-8-104 (LEXIS 1999) currently provides:

§ 6-8-104. Wearing or 
carrying concealed weapons; penalties; exceptions; permits

(a) A person who wears or 
carries a concealed deadly weapon is guilty of a misdemeanor punishable by a 
fine of not more than seven hundred fifty dollars ($750.00), imprisonment in the 
county jail for not more than six (6) months, or both, 
unless:

(i) The person is a peace 
officer;

(ii) The person possesses 
a permit under this section; or

(iii) The person holds a 
valid permit from a state agency in another state authorizing him to carry a 
concealed firearm.

(b) The attorney general 
is authorized to issue permits to carry a concealed firearm to persons qualified 
as provided by this subsection. The attorney general shall promulgate rules 
necessary to carry out this section no later than October 1, 1994. Applications 
for a permit to carry a concealed firearm shall be made available and 
distributed by the division of criminal investigation and local law enforcement 
agencies. The permit shall be valid throughout the state for a period of five 
(5) years from the date of issuance. The permittee shall carry the permit, 
together with valid identification at all times when the permittee is carrying a 
concealed firearm and shall display both the permit and proper identification 
upon request of any peace officer. The attorney general through the division 
shall issue a permit to any person who:

(i) is a resident of the 
United States and has been a resident of Wyoming for not less than six (6) 
months prior to filing the application. The Wyoming residency requirements of 
this paragraph do not apply to any person who holds a valid permit from a state 
agency in another state authorizing him to carry a concealed 
weapon;

(ii) Is at least 
twenty-one (21) years of age;

(iii) Does not suffer 
from a physical infirmity which prevents the safe handling of a 
firearm;

(iv) Is not ineligible to 
possess a firearm pursuant to 18 U.S.C. § 922 (g) or W.S. 
6-8-102;

(v) Has not been 
committed to a state or federal facility for the abuse of a controlled substance 
or convicted of a violation of the Wyoming Controlled Substances Act of 1971, 
W.S. 35-7-1001 through 35-7-1057 or similar laws of any other state or the 
United States relating to controlled substances;

(vi) Does not chronically 
or habitually use alcoholic liquor and malt beverages to the extent that his 
normal faculties are impaired. It shall be presumed that an applicant 
chronically and habitually uses alcoholic beverages to the extent that his 
normal faculties are impaired if the applicant has been involuntarily committed 
to any residential facility pursuant to the laws of this state or similar laws 
of any other state as a result of the use of alcohol;

(vii) Demonstrates 
familiarity with a firearm. A legible photocopy of a certificate of completion 
of any of the courses or classes or a notarized affidavit from the instructor, 
school, club, organization or group that conducted or taught the course or class 
attesting to the completion of the course or class by the applicant or a copy of 
any document which shows completion of the course or class or evidences 
participation, of firearms competition, shall constitute evidence of 
qualification under this paragraph. Any one (1) of the following activities 
listed in this paragraph shall be sufficient to demonstrate familiarity with a 
firearm:

(A) Completion of any 
certified firearm safety or training course utilizing Instructors certified by 
the National Rifle Association or the Wyoming law enforcement 
academy;

(B) Completion of any law 
enforcement firearms safety or training course or class offered for security 
guards, investigators, special deputies, or any division of law enforcement or 
security enforcement;

(C) Experience with a 
firearm through participation in an organized handgun shooting competition or 
military service;

(D) Completion of any 
firearms training or safety course or class conducted by a state certified or 
National Rifle Association certified firearms instructor;

(E) Be certified as 
proficient in firearms safety by any Wyoming law enforcement agency under 
procedures established by that agency; or

(F) Honorable retirement 
as a federal or state peace officer who has a minimum of ten (10) years of 
service.

(viii) Is not currently 
adjudicated to be legally incompetent; and

(ix) Has not been 
committed to a mental institution.

(c) The division may deny 
a permit if the applicant has been found guilty of or has pled nolo contendere 
to one (1) or more crimes of violence constituting a misdemeanor offense within 
the three (3) year period prior to the date on which the application is 
submitted or may revoke a permit if the permittee has been found guilty of or 
has pled nolo contendere to one (1) or more crimes of violence constituting a 
misdemeanor offense within the preceding three (3) years.

(d) The application shall 
be completed, under oath, on a form promulgated by the attorney general to 
include:

(i) The name, address, 
place and date of birth of the applicant;

(ii) A statement that, to 
the best of his knowledge, the applicant is in compliance with criteria 
contained within this section;

(iii) A statement that 
the applicant has been furnished a copy of this section and is knowledgeable of 
its provisions;

(iv) A conspicuous 
warning that the application is executed under oath and that a materially false 
answer to any question or the submission of any materially false document by the 
applicant may result in denial or revocation of a permit and subjects the 
applicant to criminal prosecution under W.S. 6-5-303.

(e) The applicant shall 
submit to the division through the sheriffs office in the county of the 
applicant's residence:

(i) A completed 
application as described in subsection (d) of this 
section;

(ii) A nonrefundable 
permit fee of fifty dollars ($50.00), if he has not previously been issued a 
statewide permit, or a nonrefundable permit fee of fifty dollars ($50.00) for 
renewal of a permit;

(iii) A full "set of 
fingerprints of the applicant administered by a law enforcement agency. The 
actual cost of processing the set of fingerprints required in this paragraph 
shall be borne by the applicant;

(iv) A photocopy of a 
certificate or an affidavit or document as provided by paragraph (b)(vii) of 
this section.

(f) The sheriffs office 
shall forward items received under subsection (e) of this section but shall 
retain ten dollars ($10.00) of each original permit fee and five dollars ($5.00) 
of each renewal permit fee. The division, upon receipt of the items listed in 
subsection (e) of this section, shall process the full set of fingerprints of 
the applicant for any criminal justice information. The cost of processing the 
fingerprints shall be payable to the division.

(g) The sheriff of the 
applicant's county of residence shall submit a written report to the division 
containing any information that he feels may be pertinent to the issuance of a 
permit to any applicant. The written report shall state facts known to the 
sheriff which establish reasonable grounds to believe that the applicant has 
been or is reasonably likely to be a danger to himself or others, or to the 
community at large as a result of the applicant's mental or psychological state, 
as demonstrated by a past pattern or practice of behavior, or participation in 
incidents involving a controlled substance, alcohol abuse, violence or threats 
of violence as these incidents relate to criteria listed in this section. The 
written report shall be made within thirty (30) days after the date the sheriff 
receives the copy of the application. The sheriff of the applicant's county of 
residence shall notify the chief of police, if any, of the applicant's place of 
residence of the application for a concealed firearm permit by the applicant. 
The chief of police shall submit written comments to the division under the 
guidelines prescribed in this section. Submitted comments shall not be 
considered a public record.

(h) The sheriff of the 
applicant's county of residence may, at his discretion, submit a written report 
to the division recommending immediate issuance of a concealed firearm permit 
prior to the mandatory fingerprint processing. The written recommendation shall 
specifically state that the sheriff has personal knowledge that the applicant is 
qualified to be issued a permit.

(j)4 The sheriff of the applicant's county of residence may, 
at his discretion, submit a written report to the division recommending the 
issuance of a concealed firearm permit to an applicant between eighteen (18) and 
twenty-one (21) years of age who meets the requirements specified in this 
section. The written recommendation shall specifically state that the sheriff 
has personal knowledge of the applicant's situation or circumstances which 
warrant the issuance of a concealed firearm permit. The division may issue a 
permit to carry a concealed firearm to those individuals between eighteen (18) 
and twenty-one (21) years of age under circumstances that a reasonable, prudent 
person would believe warrant the issuance of a permit to carry a concealed 
firearm. The decision to issue a concealed firearm permit shall be based on the 
satisfactory completion of the requirements of this section and any voluntary 
written report offered by the sheriff of the county of the applicant's residence 
which shall clearly state the reasons the applicant should be issued a permit. 
The applicant may submit a written report containing relevant facts for 
consideration by the division.

(k) An applicant shall 
pay the cost of fingerprinting services for one (1) set of fingerprints and 
shall not be charged for any additional services necessary to obtain a legible 
set of fingerprints.

(m) The division shall, 
within sixty (60) days after the date of receipt of the items listed in 
subsection (e) of this section, either:

(i) Issue the permit; 
or

(ii) Deny the application 
based on the ground that the applicant fails to qualify under the criteria 
listed in this section or upon reasonable grounds for denial specified under 
subsection (g) of this section. If the division denies the application, it shall 
notify the applicant in writing, stating the grounds for denial and informing 
the applicant of a right to submit, within thirty (30) days, any additional 
documentation relating to the grounds of denial. Upon receiving any additional 
documentation, the division shall reconsider its decision and inform the 
applicant within twenty (20) days of the result of the reconsideration. The 
applicant shall further be informed of the right to seek review of the denial in 
the district court pursuant to the Wyoming Administrative Procedure Act, W.S. 
16-3-101 through 16-3-115.

(n) The division shall 
maintain an automated listing of permit holders and pertinent information, and 
the information shall be available on-line, upon request, at all times to all 
Wyoming law enforcement agencies.

(o) Within thirty (30) 
days after the changing of a permanent address, or within thirty (30) days after 
the loss or destruction of a permit, the permittee, including any permittee 
under paragraph (a)(iii) of this section, shall so notify the division. 
Violation of this subsection may result in cancellation or revocation of the 
permit.

(p) In the event that a 
permit is lost or destroyed, the permit shall be automatically invalid, and the 
person to whom the same was issued may, upon payment of a five dollar ($5.00) 
fee to the division, obtain a duplicate, upon furnishing a notarized statement 
to the division that the permit has been lost or 
destroyed.

(q) A permit issued under 
this section shall be revoked by the division:

(i) If the permittee 
becomes ineligible to be issued a permit under the criteria set forth in this 
section; or

(ii) For any conviction 
of any offense involving a controlled substance, alcohol abuse while carrying a 
concealed weapon or any crime of violence or a plea of nolo contendere to any of 
these crimes.

(r) Repealed by Laws 
1995, ch. 147, § 1, [eff. Feb. 24, 1995.]

(s) The permittee may 
renew his permit on or before the expiration date by filing with the sheriff of 
the applicant's county of residence the renewal form, a notarized affidavit 
stating that the permittee remains qualified pursuant to the criteria specified 
in this section, and the required renewal fee. The permit shall be renewed to a 
qualified applicant upon receipt of the completed renewal application, 
appropriate payment of fees and the division shall verify that the criminal 
history information available to the division does not indicate that possession 
of a firearm by the applicant would constitute a violation of state or federal 
law. A permittee who fails to file a renewal application on or before its 
expiration date shall renew his permit by paying a late fee of ten dollars 
($10.00). No permit shall be renewed six (6) months or more after its expiration 
date, and the permit shall be deemed to be permanently expired. A person whose 
permit has permanently expired may reapply for a permit pursuant to subsections 
(b) through (e) of this section.

(t) No permit issued 
pursuant to this section or any permit issued from any other state shall 
authorize any person to carry a concealed firearm into:

(i) Any facility used 
primarily for law enforcement operations or administration without the written 
consent of the chief administrator;

(ii) Any detention 
facility, prison or jail;

(iii) Any courtroom, 
except that nothing in this section shall preclude a judge from carrying a 
concealed weapon or determining who will carry a concealed weapon in the 
courtroom;

(iv) Any meeting of a 
governmental entity;

(v) Any meeting of the 
legislature or a committee thereof;

(vi) Any school, college 
or professional athletic event not related to firearms;

(vii) Any portion of an 
establishment licensed to dispense alcoholic liquor and malt beverages for 
consumption on the premises, which portion of the establishment is primarily 
devoted to that purpose;

(viii) Any place where 
persons are assembled for public worship, without the written consent of the 
chief administrator of that place;

(ix) Any elementary or 
secondary school facility;

(x) Any college or 
university facility without the written consent of the security service of the 
college or university; or

(xi) Any place where the 
carrying of firearms is prohibited by federal law or regulation or state law or 
regulation.

(u) All monies collected 
pursuant to this section shall be deposited in the general 
fund.

(w) All funds received by 
the sheriff pursuant to the provisions of this section shall be deposited into 
the general fund of the county.

(y) As used in this 
section:

(i) "Division" means the 
division of criminal investigation within the office of the attorney 
general;

(ii) "Firearm" means any 
pistol, revolver or derringer, designed to be fired by the use of a single 
hand.

(z) By March 1 of each 
year, the division shall submit a statistical report to the governor and to the 
joint judiciary interim committee indicating the number of permits issued, 
revoked, suspended and denied.

(aa) Notwithstanding the 
provisions of W.S. 1-39-105 through 1-39-112, the attorney general and members 
of the division of criminal investigation are immune from personal liability for 
issuing, for failing to issue, and for revoking any concealed firearms permit 
under this section. A sheriff, police chief, employee of a sheriff or police 
chiefs office shall not be personally liable for damages in a civil action 
arising from any information submitted pursuant to subsections (g) through (i) 
of this section. Nothing in this section shall relieve any governmental entity 
of any liability pursuant to W.S. 1-39-101 through 
1-39-120.

FACTS

[¶10] On January 
28, 1998, Mecikalski submitted her Concealed Firearm Permit Application on the 
form promulgated by DCI under Wyo. Stat. Ann. § 6-8-104 (b). Her application 
fulfilled all the requirements set out in § 6-8-104 (b), and she otherwise met 
the statutory criteria to qualify for a concealed firearm permit, except for § 
6-8-104 (g). That section calls for the local sheriff and the chief of police, 
if applicable, to submit written reports "containing any information . . . 
pertinent to the issuance of a permit to . . . [the] applicant." The sheriffs 
report, dated February 18, 1998, and submitted on a form promulgated by DCI, 
indicated that Mecikalski was a danger to herself, to others, and to the 
community at large. The report did not indicate that Mecikalski had a local 
"record," but did state that she had "numerous contacts" with the sheriff, In 
his narrative, the sheriff provided this information:

[¶11] Applicant 
has a number of disturbance complaints on file with the Laramie Police 
Department, involving disputes between her and customers. I am enclosing a copy 
of the records of contacts from both of our agencies. I have witnessed several 
hostile situations with her and will not recommend that a CFP be 
issued.

[¶12] The 
sheriff recommended that Mecikalski's concealed firearm permit be 
denied.

[¶13] On 
February 10, 1998, the chief of police of the Laramie Police Department also 
completed a form similar to that submitted by the sheriff. The chief of police 
also indicated that Mecikalski was a danger to herself, to others, and to the 
community at large, and that she had "numerous contacts" with the police 
department. The chief of police attached a five-page computer printout detailing 
Mecikalski's contacts with the police department. The chief of police stated in 
his narrative that Mecikalski had ". . . been involved in numerous disturbance 
complaints and displayed aggressive, angry behavior." The computer printout 
provided by the chief of police demonstrated: That Mecikalski had been a suspect 
in threats/harassment/disturbances situations on four occasions; that she had 
been a suspect in domestic disputes on four occasions; and that she had over 60 
"contacts" with the police department over an 18-year period (1980-98) (albeit 
many were contacts that she herself initiated as a victim or 
witness).

[¶14] The record 
is not entirely clear as to what date Mecikalski's application was complete and 
ripe for review by DCI. However, by letter dated June 2, 1998, DCI informed 
Mecikalski that her request for a concealed firearm permit was denied on the 
basis of information gathered under § 6-8-104 (g). That letter also informed her 
that she could submit additional documentation within 30 days, and that DCI 
would reconsider its decision in light of the additional information. Mecikalski 
did seek reconsideration of DCI's decision. However, by letter dated August 5, 
1998, DCI reaffirmed its decision to deny the permit.

[¶15] On 
December 18, 1998, Mecikalski filed a petition for review in the District Court, 
Second Judicial District, Albany County, pursuant to W.R.A.P. 12.03, The 
district court affirmed, and Mecikalski seeks review here pursuant to W.R.A.P. 
12.11.

[¶16] The 
standards of review applicable to analysis of the action taken by DCI and the 
construction of the governing statute are set out in detail in Griess, 932 P.2d  
at 736-39, and we will not repeat them here. Mecikalski's principal contention 
is that § 6-8-104 (b) required DCI to issue her a concealed firearms permit if 
she met all of the criteria set out in the statute. However, the statute also 
requires reports from the sheriff and the chief of police. Subsection 
6-8-104(m)(ii) requires DCI to deny such a permit if there are reasonable 
grounds for denial based on the specifications of § 6-8-104 (g). The statute 
invests broad discretion in the DCI, county sheriffs, and chiefs of police in 
this regard. Griess, 932 P.2d  at 739; also see §§ 6-8-104 (h) and (i); and 94 
C.J.S. Weapons § 11 (1956); see generally McIntyre v. Page County Sheriff's 
Office, 538 N.W.2d 305, 308 (Iowa App. 1995); and Ambrogio v. Board of Firearms 
Permit Examiners, 42 Conn. Sup. 157, 607 A.2d 460, 464 (1992). The statute, when 
read in pari materia, clearly demonstrates a legislative intent to rely heavily 
upon the expertise of local law enforcement officials in making judgments about 
individuals who seek concealed firearm permits. Not only is that legislative 
intent clear in the statute, it is extraordinarily sensible. We agree that the 
statute is quite generous in directing DCI to issue concealed firearm permits to 
qualified individuals without proof of a specific need. However, it is also very 
restrictive in commanding DCI to deny permits if there are reasonable grounds, 
based in fact, that issuance of the permit is likely to endanger the community. 
One of the most significant changes to the concealed firearms statute is that it 
is valid throughout the state of Wyoming and likely good in many of our sister 
states. Thus, the "community" to be protected from ill-advised issuance of such 
permits is a large one and, commensurate with that, the discretion placed in law 
enforcement officials is broad. Here, the basis for denial was, reasonable under 
any measure of that term known to us or offered to us for consideration by 
Mecikalski, particularly given the framework of the governing 
statute.

[¶17] Mecikalski 
also implicitly asserts that she should be entitled to what amounts to discovery 
and a formal hearing with regard to information provided pursuant to § 6-8-104 
(g). The statute does not provide for discovery or a formal hearing, and we 
decline to read such requirements into the statute. An aggrieved applicant is 
given the opportunity to rebut the findings and conclusions of the DCI through a 
request for reconsideration of denial of a permit. Although Mecikalski did 
submit such a request, it was not accompanied by documentation, rebuttal, 
explanation, argument, authority, affidavits, or any other written material 
which served to discredit the decision reached by DCI.

[¶18] We will 
tarry only briefly with Mecikalski's contention that this Court must construe 
the language contained in § 6-8-104(g) only in light of the definition of 
"dangerous to himself or others" set out in Wyo. Stat. Ann. § 25-10-101 (a)(ii) 
(LEXIS 1999). Of course, § 6-8-104 (g) does not refer us to Title 25, chapter 
10, but rather is manifest in describing a context wholly different from that 
treated in § 25-10-101 et seq. (mental health; involuntary commitment). 
Reference to Title 25 may, in some circumstances, be instructive, but it is not 
determinative of the sort of issues likely to arise in the context of § 6-8-104 
(g).

CONCLUSION

[¶19] The order 
of the district court affirming the DCI's denial of Mecikalski's application for 
a concealed firearms permit is affirmed.

Footnotes

1 Although only a minor point, 
Appellant's Brief was not bound in the manner required by W.R.A.P. 7.05 (c) 
(briefs shall be bound only at the upper left-hand corner). Failure to comply 
with the appellate rules may be grounds for a variety of sanctions. W.R.A.P. 
1.03. In this instance we opt not to employ any sanction, but add this footnote 
to further disseminate to the Bar the necessity for thorough reading of the 
appellate rules.

2 An interesting and scholarly 
analysis of the Second Amendment and its genesis may be found in the opinion 
authored by Judge Sam R. Cummings in United States v. Emerson, 46 F. Supp. 2d 598 
(N.D.Texas 1999).

3 The parallels between the privilege 
to obtain a driver's license and a concealed firearm permit are not precise. 
However, the similarities outweigh the differences. As with a concealed firearms 
permit, an agency is authorized to adopt rules and regulations governing the 
application process. Wyo. Stat. Ann. § 31-7-103 (LEXIS 1999). There are 
objective components one must meet in order to obtain a driver's license (e.g., 
eyesight test, ability to read traffic signs, knowledge of safe driving 
practices and traffic laws), but there is also a subjective component in that an 
applicant must be able to demonstrate in a subjective driving test an "ability 
to exercise ordinary and reasonable control of a motor vehicle[.]" Wyo. Stat. 
Ann. § 31-7-114 (LEXIS 1999).

4 Appellant expressed concern that 
section (i) (between section (h) and (j)] was missing. The statute section and 
subsection numbering system used by the Wyoming Legislature omits the use of (i) 
in enumerating subsections of statutes. This also applies to sections (l), (v), 
and (x), below. The purpose, of course, is to avoid confusion between 
subsections and sub-subsections.