Document: 112 S.Ct. 2102 504 U.S. 505 119 L.Ed.2d 308 UNITED STATES, Petitionerv.THOMPSON/CENTER ARMS COMPANY. No. 91-164. Argued Jan. 13, 1992. Decided June 8, Syllabus Respondent manufactures the "Contender" pistol and, for a short time, also manufactured kit that could be used to convert Contender into rifle with either 21-inch or 10-inch barrel. The Bureau of Alcohol, Tobacco and Firearms advised respondent when was possessed distributed Contender, unit constituted "firearm" under National Act (NFA Act), 26 U.S.C. § 5845(a)(3), which defines term include barrel less than 16 inches long, known as short-barreled rifle, but not having more in length. paid $200 tax levied by 5821 upon anyone "making" filed claim refund. When its refund proved fruitless, brought this suit Tucker Act. Claims Court entered summary judgment Government, Appeals reversed, holding "actually must assembled" order "made" within NFA's meaning. Held: is affirmed. 924 F.2d 1041 (Fed.1991), Justice Souter, joined Chief O'Connor, concluded conversion packaged together have been NFA purposes. Pp. 509-518. 1 (a) language 5845(i)—which provides "[t]he 'make', [its] various derivatives . ., shall manufacturing putting otherwise producing firearm"—clearly demonstrates aggregation separate parts can assembled only firearm, gun other firearm would no use association except it constitute firearm. If, held, were made at time final assembly (the moment "put together"), statutory "manufacturing producing" redundant. Thus, Congress understood cover assembly, some disassembled included. 509-512. 2 (b) However, application ordinary rules construction shows ambiguous whether, given fact converted an NFA-regulated unregulated mere possibility assemble former renders their combined packaging "making". 512-517. 3 (c) ambiguity properly resolved applying rule lenity respondent's favor. See, e.g., Crandon v. United States, 494 152, 168, 110 997, 1007, 108 132. Although statute here construed civil setting, has criminal applications carry additional requirement willfulness. Making without approval may subject sanction, possession of, failure pay on, unregistered 517-518. 4 Scalia, Thomas, agreed prevents from being covered NFA, on basis different ambiguities: whether includes unassembled parts, requisite "inten[t] fired shoulder" existed component. 2104-2106. 5 SOUTER, J., announced delivered opinion REHNQUIST, C.J., O'CONNOR, joined. SCALIA, concurring judgment, THOMAS, WHITE, dissenting opinion, BLACKMUN, STEVENS, KENNEDY, JJ., opinion. 6 James A. Feldman, Washington, D.C., argued, petitioner. 7 Stephen P. Halbrook, Fairfax, Va., respondent. 8 SOUTER THE CHIEF JUSTICE O'CONNOR join. 9 Section see 5849, levies per defined 5821. Neither pistols nor rifles barrels long longer are firearms definition, rifles, are. 5845(a)(3). This case presents question manufacturer "makes" packages containing shoulder stock barrel, permitting pistol's long-barreled rifle,1 or, if left gun, regulated. We hold require payment these facts. 10 * word art NFA. It means, among things, "a ." "The 'rifle' means weapon designed redesigned, remade, intended redesigned remade energy explosive fixed cartridge fire single projectile through rifled bore each pull trigger, any such readily restored cartridge." 5845(c). 11 consequence maker serious. 5821(a) imposes "for made," "shall person making firearm," 5821(b). Before one make obtain Secretary Treasury, 5822, 5841 requires "manufacturer, importer, register he manufactures, imports, makes" central registry maintained Treasury. A who fails comply provisions penalties up years' imprisonment fine $10,000, both, imposed proof willfulness knowledge. 5871. 12 Thompson/Center Arms Company single-shot called "Contender," so handle removed "receiver," metal frame housing hammer firing mechanism. See 27 CFR 179.11 (1991) (definition receiver). For 1985 carbine-conversion consisting stock, wooden fore-end. If joins receiver kit's fore-end, product carbine however, shorter, pistol-length added, "short-barreled" rifle. entire conversion, takes few minutes; even time. 13 In 1985, pistol, responded paying submitting permission 5822 "to make, use, segregate unit" package serially numbered attachable then claim. After six months had elapsed action it, company States Act, 28 1491, arguing registered meaning because components. concluding 19 Cl.Ct. 725 (1990). 14 Federal Circuit 1041, 1043 (1991). expressly declined follow decision Seventh Drasen, 845 731, cert. denied, 488 909, 109 262, 102 250 (1988), held "complete kit" purposes granted certiorari resolve conflict. 502 ----, 48, 116 II 15 word, (other qualified engage business chapter), together, altering, combination these, firearm." 5845(i).2 But provision does address finished one. Government contends necessary; argues is. urges us view shipment just we bicycle home assembly. short-barrel 'firearm,' sold partially state remove regulation Act." Brief 6. 17 Government's analogy not, course, exact. While example crated nothing bicycle, whereas contents Thompson/Center's version. These distinctions, do define issues raised argument, first segregation sufficient purpose amount until issue Circuits divided. 18 think clear answer point. definition "make" "putting together," submits, must, then, Since narrowest might included set very least, fall consistent holdings every Appeals, court below, consider similar language. supra; Endicott, 803 506, 508-509 (CA9 1986) (unassembled silencer silencer); Luce, 726 47, 48-49 (CA1 1984) (same); Lauchli, 371 303, 311-313 (CA7 1966) machineguns machineguns).3 thus reject broad extent mean complete before serve almost confirms reading it.4 20 facts step paradigm aggregated assembling Two courts our knowledge dealt way claims placed further part produced. Kokin, 365 595, 596 (CA3 (carbine all necessary machinegun machinegun), 385 987, 87 597, 448 (1966); Zeidman, 444 1051, 1053 1971) (pistol found "in drawers same dresser" rifle). Here true, ever likelihood belied utter uselessness placing converting others conversion. Where evidence supports finding uselessness, falls fair intendment "otherwise 5845(i).5 B 21 Here, dealing useful ostensible utility weapon. There is, sure, resemblance latter sale converter kit, two apparent object something else ends regulated not. obvious those want both regular enough place scope one.6 22 statute's structure definitive guidance. suggests guidance subsections governing types weapons covers combinations parts. "machinegun," example, amended Gun Control 1968 read control person." 5845(b).7 1986, "silencer" Firearm Owners' Protection "includ[e] fabricating silencer. 5845(a)(7); 921(a)(24). 23 stresses contrast between references "any parts" silence about suffice argument number answers, however. First, sweeps broadly conflict "make," applicable firearms, implies where fully together." all, well definitions contrasting raise concept "making." 24 now reference, 5845(a)(7), text appears 921(a)(24), itself contains "make". Prior muffler definition." 5845(a)(7) (1982 ed.). Courts silencers easily assembled. F.2d, 508-509; 48-49. 25 replaced (as 921 title 18, Code)." Pub.L. 99-308, 109(b), 100 Stat. 449, 460. defining added reads: terms 'firearm silencer' muffler' device silencing, muffling, diminishing report portable including muffler, fabrication." 101, 451. if, amendment, already conclusion redundancy suggest assumed did suggestion (and implied "make") proven false actually result new definition. apparently reached kits "combination" language, net effect expanding coverage beyond kits. will help incomplete circumvent prohibition selling kits." H.R.Rep. 99-495, p. (1986). Because addition "combination therefore, bear implication put cannot give much answering us.8 get analyzing definition's reference speaks combination" them person. broader clearly need particular proximity other. definitions, neither light shed limits say notion probably line drawn demonstrated textual considerations. looks history congressional behind regulating purposes, should caution against drawing apply kit. 1337, 83d Cong., 2d Sess. A395 (1954) adoption original preclude antique guns collectors, pursuance indicated intent modern lethal weapons, revolvers, efficiently criminals gangsters"). 29 course face regulate certain likely addresses concealable used. recognize "the criminal-type weapon," 20, really deciding what rifles. Its goes quite treated stock. 30 observations extraneous purpose. Nor helped legislative history, find support narrow presented here. III 31 construction, statute. key resolving lies recognizing although construe Cf. Cheek 498 111 604, 609, 617 ("Congress softened impact common-law presumption [that ignorance law defense prosecution] specific violate element federal offenses"); §§ 7201, 7203 (criminalizing willful evasion taxes file return). one, 5861, proper, 132 (1990) (applying interpreting invoked action); Commissioner Acker, 361 87, 91, 80 144, 147, 127 (1959).9 Accordingly, conclude NFA.10 therefore 32 Affirmed. judgment. 33 I agree plurality (NFA) sufficiently trigger lenity, leading covered. disagree plurality, over lies—a point makes difference outcome here, considerable future cases. thinks pertains (i) manufacture possibly rather (ii) Ante, 512-513,517. fundamental manufacture, component indicate. 34 As White points out, choice worries nowhere suggested statute: 5845 simply "utility" aggregable Post, 524 (White, dissenting). does, conspicuously combine silencers, machineguns, destructive devices absence This, assemblage, convinces me encompass least unambiguously. 35 reaches textually uncharted destination determining derivative operative ("There levied, collected, rate made"), that, assembled, firearms. Noting "definition 'make' 'putting together,' 'manufacturing firearm,' " reasons 'put together'), redundant." 510. 36 reasoning seems mistaken. section ("manufacturing" producing") becomes "Manufacturing" parenthetical phrase "(other chapter)," together" assembles engages prior activity immunized considered demonstrating relevant qualification, merely cannot. Recognition distinction alone explain inclusion though "manufacturing" producing," redundant, residual often They meant insurance, anything draftsman inadvertently omitted antecedent catalog; good enough, all. prime "iteration obviously afoot," Moskal 461, 471, 449 (Scalia, dissenting), inflexible avoiding produce disaster. event, plurality's own interpretation (whereby entirely category "making") bit easier conceive nonredundant producing." 37 struggles why ("making" parts) render redundant elsewhere 5845, device, 5845(b) (f), incorporated-by-reference silencer, (referring 921). ante, 513-516. explanations persuasive, particularly respect resorts last hope lost interpretive causes, St. Jude hagiology history. said before, reliance source inappropriate application. R.L.C., 503 1329, 117 559 (1992) judgment). 38 another reason incorrect: determines constitutes via (here 5821, tax) chapter. With devices, instance, causes aggregations whenever nouns used, they conjunction verb derivatives. restrictions 5844, importation "firearm[s]" (a "machinegun[s]," 5845(a)(6)) (because machinegun) appear 5844. demonstrates, say, error interpretation, sense identity (which components shotguns) (excluding components) Subsection 5842(a), identify serial removed; subsection 5842(b) "possesses" lacking assigned Under (b), since shotgun possess reasons, firearm" shotguns, "firearms transferred" 5811 transfer right.1 39 Finally, established (assembled not) "having length," requires, "rifle" "intended shoulder," 5845(c), intended, far concerned record indication else's intent), forms instructions emphasized legal sanctions attached unauthorized there carved following: "WARNING. FEDERAL LAW PROHIBITS USE WITH BARREL LESS THAN INCHES." 40 (for reason) concur Court. 41 dissenting. 42 meet (NFA), assembled." (footnote omitted). majority pinched fail accord full defined, 5845(i), "rifle," actual "disassembled parts," 510, assemblage results short, produced another, surprisingly, result. 43 difficult case, resolution, me, dispositive, concedes distributes collection Indeed, concerning appeal suggest, attention, escape registration requirements distributing interchangeable pieces design avoid nevertheless draws artificial between, hand, "can "no "an rifle." 512-513. 44 agree. Certainly based extra prefers creating ambiguity, signal distinctions irrelevant. To resort 'ingenuity create ambiguity' exist James, 478 106 3116, 3121, 92 483 (1986), quoting Rothschild 179 463, 465, 197, 198, 45 L.Ed. 277 (1900). noted comes nonregulated form failing 13-14. today closes loophole—one offering parts—only open equal dimension—one respectfully dissent. 46 47 defendant adequate notice statute, appropriate lenity.1 am persuaded, misapplied case. 48 White, 523-524, Court, constituent end 524, join his add comment, persuaded prevail ambiguous. 49 main function protect citizens unfair punitive statutes. Obviously, punishment conduct prohibited law.2 risk victim unfairness, extremely remote. gave ample opportunity challenge litigation liability stake. 1042-1043 (CA Fed.1991). Moreover, proper future. 50 after acknowledging involves statute" setting," 12, proceeds treat prosecution. my view, approach like testing important regulatory serves critical objective distribution firearms—dangerous cause countless crimes occur day throughout Nation. field pervasive governmental dangerous nature public interest danger controlled.3 carrying out motivated enactment record, compelling mechanical lenity. 51 reason, stated Unregulated, "other chapter," refers manufacturers sought obtained qualification 5801(a)(1), $1,000 occupational tax. Rather seek applied nonqualified "making tax" 5821(a). complete-parts flash suppressor which, affixed extended 737. Drasen rifle's ibid., ours. accept suggestion, taxable able "avoid tax." 11. Rather, item. Failure evasion, avoidance. system, avoidance remaining outside ambit person's right. "Over again sinister arranging one's affairs keep low possible. Everybody so, rich poor; right, nobody owes duty demands: enforced exactions, voluntary contributions. demand name morals cant." Newman, 159 848, 850-851 (CA2) (L. Hand, 331 859, 67 1755, 91 1866 (1947). Contrary Scalia's post, 522, understanding parts—shared four Members dissent, 523 Blackmun, Stevens, Kennedy, dissenting) (any firearm) applies 5821(a), see, (possession number); 5844 (importation firearm); (transfer firearm). Since, conclude, follows, contrary, portions "firearms" combination. Scalia how free contain make." Our normal canons whole, unless adopt enquiry avoided kind, because, 'made' 'intended shoulder.' 8. From far, disassembled, brings contained Surely take credulity carving warning At "destructive device" 5845(f). envision device. upbraids "St. construction." 521. shrine, peopled (though room more) congregation elders Mr. Frankfurter: "A living organisms, derives significance sustenance environment, severed mutilated. Especially true us, process gained confining inquiry corners. Only historic legislation fragment—that rise it—can yield meaning." Monia, 317 424, 432, 63 409, 413, 376 (1943) (dissenting opinion). urged defer agency longstanding Revenue Rulings. Even entitled deference, rulings, Rev.Rul. 61-45, 1961-1 Cum.Bull. 663, 61-203, 1961-2 224 (same), addressing stocks relying 54-606, 1954-2 33, repealed obsolete 1972, 72-178, 1972-1 423, "possession Reply 10. Stevens 'tax statute,' 526, "criminal statute," 525, n. 1, know essential "criminal." Surely, apply, Criminal Code. Universal C.I.T. Credit Corp., 344 218, 221-222, 73 227, 229, 97 260 (1952) (construing Fair Labor Standards 215, 216(a)). 'in setting,' prosecution." 526. whose authoritative administration calling refrain cases challenged litigation. relies appearing (in context) "rifle." 5845(c) ("The remade. ."). possible rely context suggestive still problem identified. 5845's arsenal uses thereof. 5845(e). necessarily follows weapon" thing hand ("Finally, observed, construing bound temporal 209(a) remains, petitioners' favor plainly states misconstrued intent"); (1959) settled 'penal statutes strictly,' 'is subjected penalty words impose it' ") (citations Ambiguity 'a world common understand, intends passed' "of seriousness penalties, usually represents moral condemnation community, [and therefore] legislatures activity." Bass, 404 336, 348, 515, 523, (1971). 1968, 90-618, 82 1213, et seq.; Export 94-329, 90 744, 2778; Biswell, 406 311, 316, 1593, 1596, (1972) (acknowledging "pervasively business").

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