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The NSW government has passed a suite of sweeping reforms in the wake of the Bondi Beach terror attack, including changes to gun laws.
The Terrorism and Other Legislation Amendment Bill 2025 passed the upper house in the early hours of Wednesday morning after a lengthy debate, with 18 votes in favour, and eight against.
It will return to the lower house on Wednesday to approve the bill’s final version.
The legislation combines changes to gun control, hate speech and protest laws, and seeks to introduce Australia’s “toughest” firearms regime, including hard caps on gun ownership, tighter magazine limits, shorter licence periods and the reclassification of certain weapons.

The NSW Liberal Party has shown support for a new legislative bill, while the Nationals have expressed their opposition, criticizing it for imposing what they describe as “arbitrary limits” on farmers.

At the centre of the debate sits a legal framework already regarded as among the strictest in the world, but one that, according to firearms lawyer James Glissan, is generally misunderstood.
“I would say that the easiest way to conceptualise it is that in NSW, the baseline is prohibition, with narrow exceptions,” the practice manager at Glissan and Associates said.

This legislation traces its origins to a broader effort to tighten gun control laws and outlines several key provisions.

One significant aspect of the bill is that gun licenses will be restricted to Australian citizens, though there are exceptions for certain New Zealand permanent residents based on their occupations.

The new reforms will limit recreational gun licence holders to a maximum of four firearms, allowing up to 10 for commercial users such as farmers, pest controllers and sports or target shooters.
Before the reforms, there was no hard limit on how many firearms a licence holder could own within an authorised category.
The changes will also completely ban belt-loaded magazines — the kind allegedly used in the Bondi Beach terror attack.

In a last-minute addition to the legislation, a Greens-proposed amendment was included to prohibit gun ownership for individuals under investigation for terrorism-related activities, extending this ban to members of their households as well.

Licence terms will be reduced from five years to two years to increase the frequency of reviews, and gun owners will lose the right to appeal a licence removal in the NSW Civil and Administrative Tribunal.

According to Glissan, the structure of this act is a carefully crafted response to the National Firearms Agreement. This agreement, which established stringent, uniform gun control across Australian states and territories, was enacted in 1996 following the tragic Port Arthur massacre that claimed 35 lives.

What laws were already in place?

Firearm ownership in NSW is governed by the Firearms Act 1996, which makes it an offence to possess or use a gun without a licence or permit and requires almost all firearms to be registered.
Guns may only be used for the specific “genuine reason” under which the licence was granted, with penalties attached to any misuse.
The firearms registry, run by the NSW Police Force, can revoke a licence if the holder is found to no longer be a “fit and proper person” — an ongoing test which involves checks on character, honesty, lawfulness, mental health, and history of domestic violence or other concerning police interactions.

Glissan said the architecture of the act reflects a deliberate policy response following the National Firearms Agreement — a set of strict, uniform gun control laws adopted by all Australian state and territory governments in 1996, in response to the Port Arthur massacre, in which 35 people were shot dead.

“We have what is generally considered to be a quite a good series of tests and checkpoints,” Glissan said.

Glissan said when people had their firearms licences renewed — which will now be every two years following the bill’s passage — it included additional checks to ensure that people’s mental health is not an adverse factor or one that would negatively impact public safety.

How are firearms categorised?

NSW law divides firearms into categories that become progressively more restrictive depending on their power, loading action and magazine capacity.

In broad terms, the categories are structured as follows:

  • Category A: Rimfire rifles (other than self-loading), single or double-barrelled shotguns, air rifles and paintball guns.
  • Category B: Centre-fire rifles, shotgun–rifle combinations and lever-action shotguns, with magazine capacity capped at five rounds.
  • Category C: Semi-automatic rimfire rifles and pump-action or semi-automatic shotguns, restricted to specific users such as professional shooters.
  • Category D: Semi-automatic centre-fire rifles and other highly restricted firearms, requiring special permissions.
  • Category H: Handguns, which operate under a separate probationary and permit-based regime.
Category A is the most common type of gun category in NSW, accounting for the largest number of registered firearms in the state.
Rimfire weapons refer to the firing pin of the gun hitting the rim of the cartridge, while in centre-fire weapons, the firing pin hits the centre of the cartridge. High-powered rifles tend to be centre-fire.

Reforms will reclassify straight-pull, pump-action, and button- or lever-release firearms as Category C weapons, effectively prohibiting their use except for limited official purposes, such as farming or pest control.

What are the current limits on numbers?

Under current laws, there are no hard limits on how much ammunition someone may hold in the category for which they are licensed.

“You’re restricted to the kind of ammunition that matches the category,” Glissan said, “but you’re not restricted in the amount of ammunition that you can have”.

Magazine capacity is regulated, but the number of magazines is not.
“When you’re looking at, hunting rifles, for example, you have a magazine of a capacity of five, let’s say, which is the limit, you can have 10 of those magazines,” Glissan said.
“In the absence of some sort of malfunction or a jam, that means that realistically, you have 50 rounds available.”

The new legislation will reduce magazine capacity for Category A and B firearms to a maximum of five to 10 rounds, from the current unlimited capacity.

Who owns the guns?

Data from the Australian Institute’s Gun Control in Australia report, released in January, challenges the perception that firearms in NSW are predominantly concentrated in rural areas.
Four in 10 NSW firearms licence holders live in major cities, with a further four in ten living in inner regional areas.

More than one-third of all registered firearms are owned by individuals living in major cities, and more than one-third by those in inner regional areas.

The report also found that the two individual licence holders who own the most firearms in NSW both live in inner Sydney, with 386 and 304 firearms, respectively — levels of ownership that are currently legal under firearm laws in every state and territory except Western Australia.
Glissan said this reflects how the licensing test is applied in practice.
“Think of it like this: it’s a ‘genuine reason’ for the licence,” he said. “It’s not a ‘genuine reason’ for the firearm.”
Vincent Hurley, a criminologist at Macquarie University, said the sheer volume of guns — of which there are currently more in Australia than there were at the time of the Port Arthur massacre — makes it “highly unlikely that licensing police in the Sydney metropolitan area can keep up with the checking or securing of firearms”.

“From a policing perspective, there is no way any police in Australia can keep up to date,” he said.

What firearms do police carry?

Glissan, a former police officer, said frontline police in NSW are limited to sidearms, with access to rifles and other long arms tightly restricted.

“Prior to about a year ago, police — all police — had 40 calibre, handguns,” he said, referring to Glock 17 pistols.

“Since, we’ve moved from the 40 calibre pistols to the 9 millimetre pistols.”
Rifles, including those deployed during high-risk incidents, are not available to general duties officers — a premise Hurley, also a former police officer, said is justified by a “globally accepted rationale”.
“Police in Australia, who carry long arms — and there’s not many of them — never get involved in a physical confrontation with an offender, because that firearm is easily taken off the offender because that long arm is not secure,” he said.
“Glocks are a secure weapon … but they will never match a rifle in either power or distance or accuracy.”
Glissan agreed that such disparity leaves police at a marked disadvantage when a rifle is involved.
“Police are horrifically outgunned. Terribly outgunned.

“The difference between a pistol and a rifle is the equivalent to a knife and a pistol.”

Where are the blind spots?

While Glissan described the NSW firearms regime as “exceptionally strict”, he said its limitations stem from the nature of criminal law itself.
“It’s really quite good at punishing people, but its purpose and the way in which the common law system is designed is not really preventative,” he said.

“It’s really designed to be retrospective or retroactive, and punish issues of non-compliance or safety issues.”

Hurley said reforms need to address “the thin end of the wedge”.
“It’s probably something that’s unintentionally occurred over time,” he said, referring to the concentration of guns in metropolitan areas.
“But it needs to be reviewed.”

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