Analysis
[42] No where in the Firearms Act or the Restricted Weapons Order, or
Prohibited Weapons Order, No. 13, or any other regulation, is the term
“variant” defined. Nor have I been able to find any case law interpreting its
meaning in the context of firearms legislation.
[43] Because of this, a dictionary definition will be relied upon. In the Canadian
Oxford Dictionary [ Second Edition – 2004 ], “variant” has been defined as:
1- differing in form or details from the main one
2 – having different forms
3 – variable or changing
[44] It is the first of the three which I will rely upon.
[45] Another deficiency in the Firearms Act and regulations is that Parliament
has not delegated to any person or any body the power to designate which firearms
are variants of the AK-47 which are not specifically mentioned in the Act or
regulations.
[46] In particular,there has been no delegation by Parliament to the Canadian
Firearms Centre, which keeps the FRT, to decide which firearms are considered to
be unnamed variants of the AK-47. The fact that at some point in time, perhaps
even very recently, the Armi Jager AP80 data was added to the FRT, does not
provide it with any legal effect. The courts have been left with the responsibility to
decide, in cases such as Mr. Henderson’s, what is a variant and what is not.
[47] The 1992 news release from the Department of Justice, referred to in
paragraphs 30 to 32 above, stated that the purpose behind the new firearms control
law was “to control types of weapons or components which represent a threat to
public safety.” [ Emphasis added ]
[48] Mr. Henderson in his written submissions contends that his firearm is
merely an imitation of, and not a variant of, the AK-47. The court is of the view
that two are similar in appearance, but the AK-47 is capable of fully automatic fire
and the AP80 is not. Whether or not the construction of the gun and internal parts
are similar is not important in my view. What is important is whether the AP80
represents a threat to public safety. Merely resembling the AK-47 in appearance is
not enough to make it such a threat, in my opinion.
[49] Mr. Henderson also submits that the regulations require a firearm to be a
variant of the AK-47, not of the Mitchell Arms AK22, or of any other replica of
the AK-47. I agree with that submission.
[50] Even if that were not the case, I am not sure that the average gun owner
would know that the Armi Jager AP80 and the Mitchell Arms AK22 are basically
the same firearm, and were made in Italy by the same manufacturer, as Mr. Murray
Smith said they were in his letter of July 21, 2008. If it that is so then it would
have been a simple matter to add the AP80 to the same list on the relevant
regulations and thereby remove any uncertainty.
[51] If the dictionary definition relied upon is that a variant differs in form or
details from the main one, then the AP80 cannot, in my opinion, considered to be a
variant of the AK-47.
[52] It is my conclusion thatthe AP80is nota variant of the Ak-47 nor is it a
threat to public safety like the AK-47 is. It is a fact that any firearm can be
dangerous but apart from it’s similarity in appearance to the AK-47, the AP80 is
but a semi-automatic .22 calibre rifle, the majority of which are, even today,
considered to be unrestricted firearms.
[53] To summarize, an unnamed variant of an AK-47 must be similar in
appearance and capable of fully automatic fire. This would be the case even
if the variant was not of the same calibre as the AK-47, because it is the fully
automatic feature which reresents the real threat to public safety.
[54] Parliament has the power to make whatever it wants to be a restricted or
prohibited weapon. It could even prohibit any firearm which has an appearance
similar to an AK-47. Better still, it could specifically name the Armi Jager AP80 to
be a restricted or prohibited weapon.
[55] In his testimony Mr. Perry said that “there were a number of individuals
who did apply to register firearms of the AP80 make and who are now legally
grandfathered under the Firearms Act.”
[56] In my view,it is remarkable that any reasonable person would have
known toregister any firearms not specifically mentioned in the regulations.
[57] In an article published in (1993) 25 Ottawa Law Review 579, entitled
“Perils of the Unknown – Fair Notice and the Promulgation of Legislation”, the
author John Mark Keyes, said as follows:
“If the law is to command respect and function as it is intended, it must be adequately promulgated. In a pluralistic society that demands increasingly complex solutions to social problems, promulgation of the law is a constant challenge. We cannot assume that people will find out about the law as they have in the past; we cannot even assume that they found out about it in the past. Although individuals have an obligation to inquire about the law, there are limits on how much they can be expected to find out by themselves given the complexity of modern legislation and the pace at which it changes.”
Conclusion
[58] It is my conclusion, because of the reasons set out above, that the
decision of the Registrar of Firearms was unreasonable.
Remedy
[59] Under section 76 (b) of the Firearms Act, I am directing the Registrar of
Firearms to issue a registration certificate to Mr. Henderson for his Armi Jager
AP80 firearm, as an unrestricted firearm.