I am from Erie county and am sure I know whomever you are dealing with.
The Sheriff's office in most cases (occasionally it is a town/city LEO) handles and coordinates the application review, but the "Issuing Officer" is a county judge from the jurisdiction. So at he end of the day, the package of materials and LEO recommendation goes to the judge for final decision.
The references and review thereof is not in state law and you can find people in many counties where their references were never contacted. So could you do away with them and just accept that anyone submitting an application can come up with four people to say they are not a menace? Legally, yup.
New York Penal Code, section 400.
http://ypdcrime.com/penal.law/article400.htm
You may find this a good read as well:
http://www.timesunion.com/aspstories...storyid=295780