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I just eyeballed the form, and the only point where I can see the sheriffs office getting away with it is through the fact that the law requires the sheriff to perform an investigation, specifically paragraph 3 ... His form asks for residency time and local LEO agency which he could easily claim is so that he can contact your local police as part of his investigation to determine if you are someone who routinely has police at his home or complaints from neighbors etc etc. It would be a weak argument, but a judge just might agree with it since there is only a prescribed form for the application but nothing dictating exactly how the investigation into character and reputation is to be done. Maybe something to add to the ever growing 'things to change' list.
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1. State law says one piece of paper, period. It doesn't grant the sheriff permission to add others of his own.
2. State law says the sheriff conducts the investigation. It doesn't state you are required to do anything other than fill out that first and only piece of paper.
3. If the sheriff has problems doing his job investigating, then the sheriff obviously isn't doing his job very well since the other 66 counties in the Commonwealth don't have any such problem doing theirs.
4. If the sheriff can't figure out what police agency serves your place of residence, see paragraph 3.