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https://d3n8a8pro7vhmx.cloudfront.net/firearmspolicycoalition/pages/5389/attachments/original/1567445253/fpc-policy-brief-red-flag-laws.pdf?1567445253Red Flag Laws Raise Red Flags of Their Own
written by: matthew larosiere, joseph greenlee, and adam kraut“
1Presently the state of the law in: California, Cal. Penal Code §§ 18125, 18150; Colorado, Colo. Rev. Stat. Ann. § 13-14.5-103; Connecticut, Conn. Gen. Stat. Ann. § 29-38C; Delaware, 10 Del. Code Ann, §§ 7703-7704; The District of Columbia, D.C. Code Ann. §§ 7-2510.02-04; Florida, Fla. Stat. Ann. § 790.401; 430 Ill. Comp. Stat. Ann. 67/35, 40, Ind. Code Ann. § 35-47-14-2, Md. Code Ann. Pub. Safety § 5-602, Mass. Ann.Law. ch. 140 §131R, N.J. Stat. Ann. §§ 2C:58-23-24, N.Y. C.P.L.R. Law §§ 6341-43, Or. Rev. Stat. Ann. § 166.527, Wash. Rev. Code Ann. § 7.94.030, R.I. Gen. Laws §§ 8-8.3-1 et. seq., Vt. Stat. Ann. tit. 13 §§ 40534054.2Proponents often present red flag laws as mental health bills. For example, Ohio Governor Mike DeWine claimed his red flag bill would “get them the mental health treatment that they need, get them whatever help that they need.” Jon Schuppe, Red flag laws often have bipartisan support. But do they stop mass shootings? NBC News, Aug. 6, 2019,
https://nbcnews.to/2KvpzWY. Indiana state representative Wendy McNamara explained , “we want to make sure that we find help for these individuals.” Isaiah Seibert, Want to prevent gun violence? Some states turn to ‘red flag’ laws, NC Health News, Aug. 13, 2019,
https://bit.ly/2ZcTlFf. Sheriff Tony Spurlock, a leading proponent of Colorado’s law, argued that the law “will help save and support mental health.” Jennifer Kovaleski, Blair Miller, Colorado lawmakers introduce new ‘red flag’ gun violence and mental health measure, The Denver Channel, Feb. 14, 2019,
https://bit.ly/2Zi17Oi. Cf Thomas Massie, John Lott, ‘Red Flag’ Laws Are the Wrong Solution to Mass Shootings, National Review, Aug. 12, 2019,
https://bit.ly/2ZgfjYa (“red-flag laws are not specifically about about mental illness. Indeed, only one state law even mentions the term.”).3See Shelby Arnold, Alisha Desai, & David DeMatteo, Keeping Guns Away from Potentially Dangerous People , Vol 49, No. 8 Am. Psychol. Ass’n 27 (2018) (“These laws may also overstate the relationship between gun violence and mental illness, which propagates stigma and may discourage people from seeking mental health treatment.”).4 Cal. Penal Code § 18125 (reasonable cause), D.C. Code Ann. § 7-2510.04 (probable cause), Fla. Stat. Ann. §790.401(4)(c)(reasonable cause), 430 Ill. Comp. Stat. Ann. 67/35 (f) (probable cause), Md. Code Ann., Pub. Safety § 5-603(a)(4)(2019) (probable cause), Mass. Ann.Law. ch.140 § 131T(a) (reasonable cause), N.J. Stat. Ann. § 2C:58-23(e) (good cause), N.Y. C.P.L.R. § 6342(a) (probable cause), R.I. Gen. Laws § 8-8.3-4(a) (probable cause), Wash. Rev. Code Ann. § 7.94.050(3) (reasonable cause). Cf. Vt. Stat. Ann. tit. 13 § 4053 (clear and convincingevidence).5U.S. Const. amends. V, XIV.
FIREARMS POLICY COALITION4are alleged to have committed any crime, but because somebody believes they might, someday, commit one.”6Put another way, this “Minority Report”7 style legislation purports to predict crime before it occurs then attach a court order stripping that person of their rights and com-pelling them to give up—or have seized by armed police—their prop-erty (guns, ammunition, gun parts, etc.). Failing to abide by these court orders generally results in serious criminal liability.8 Those who find themselves subjected to such an order are not typically given a right to an appointed attorney,9 must engage in lengthy and onerous pro-cesses to “defend themselves”10 and face difficulty in having their property returned after being seized.11 Lastly, many “red flag” laws provide no deterrent to prevent individuals from maliciously accusing others.12History of the IssueThe first “red flag” law was adopted in Connecticut in 1999.13 Indiana came second in 2005.14 California was next, adopting a similar law in 2013,15 and creat-ing the framework that other states would work from. It was not until 2018 that these laws gained momentum. As of August 2019, seventeen states and the District of Columbia have some form of red flag law. In the 115th Congress (2017-2018), Sena-tors Richard Blumenthal (D - CT) and Lindsey Graham (R - SC) introduced the first federal bill on the topic, the “Federal Extreme Risk Protection Order Act of 2018.”16 Senator Marco Rubio introduced a similar bill in 2019.17Red flag bills came front and center in mid-2019. After a series of horrific murders, the public push to “do something” in response to the murders landed, for one reason or another, on red flag laws. This was likely because of their perceptibility as moderate gun control, and the suggested (imperfect) connection to “mental health reform.” In any event, red flag laws found bipartisan support in 2019, albeit with passionate detractors.186Rhode Island ACLU, An Analysis of 18-H 7688 and 18-S 2492, Relating to Extreme Risk Protective Orders,
http://riaclu.org/images/up-loads/180302_analysis_RedFlagsLegislation.pdf (last visited Aug. 18, 2019). 7Minority Report, (20th Century Fox, 2002). ( an action-detective thriller set in Washington D.C. in 2054, where police utilize a psychic technology to arrest and convict murderers before they commit their crime. Tom Cruise plays the head of this Precrime unit and is himself accused of the future murder of a man he hasn’t even met.)8E.g., In Illinois, it is a Class A misdemeanor. 430 Ill. Comp. Stat. 67/65. In Colorado, it is a class 2 misdemeanor. Colo. Rev. Stat. Ann. § 13-14.5-111. In Washington, the first two violations are gross misdemeanors that extend the firearms prohibition an additional five years each, and the third conviction is a class C felony. Wash. Rev. Code Ann. § 7.94.120.9Of the 18 jurisdictions that have imposed some red flag law as of August 13, 2019, only Colorado provides for appointed representation for those subject to orders. See Colo. Rev. Stat. Ann. § 13-14.5-104(1).10Respondents are put in a position of having to “defend” against an accusation that they are a danger to themselves or others.11See Parker GF., Circumstances and Outcomes of a Firearm Seizure Law: Marion County, Indiana, 2006-2013,https://www.ncbi.nlm.nih.gov/pubmed/25827648 (Finding that gun owners in Indiana waited an average of more than nine months before a court decided whether police could keep their firearms ).12Some states, like Colorado, provide no civil remedy for victims who were maliciously accused. Other states, like Maryland, do. MD. PUB. SAFE-TY § 5-609.13Conn. Gen. Stat. Ann. § 99-212.14P.L.1-2006, SEC.537, eff. Mar. 24, 200615CA Stats. 2014, c. 872 (A.B.1014), § 3, eff. Jan. 1, 2015 16 Federal Extreme Risk Protection Order Act of 2018, S. 2521, 115th Cong. § 932 (2018).16Federal Extreme Risk Protection Order Act of 2018, S. 2521, 115th Cong. § 932 (2018).17 Extreme Risk Protection Order and Violence Prevention Act of 2019, S. 7, 116th Cong. § 3042 (2019).18Thomas Massie, John Lott, ‘Red Flag’ Laws Are the Wrong Solution to Mass Shootings , National Review, Aug.12, 2019,
https://bit.ly/2ZgfjYa.“Red flag” laws provide no deter-rent to prevent individuals from maliciously accusing others
FIREARMS POLICY COALITION5Present State of the Issue Currently, seventeen states and the District of Columbia have enacted some form of red flag law.19 The policies vary in several meaningful ways, cov-ered herein. Who Can Bring a Petition?The exact method as to who can petition the court for an order to be issued against another varies from juris-diction to jurisdiction. In some states, family or household members can submit a petition.20 In others, it is restricted to law enforcement or other state offi-cials.21 And there are some in which a much wider net of individuals, including mental health professionals, educators, school administrators, former roommates, or even co-workers are able to submit a petition.22What Happens After A Petition is Brought?The manner in which an order is issued varies by jurisdiction. In all states, orders can be issued ex parte (that is, without the presence of the person against whom the order is sought). Orders can also be issued after the subject person receives notice and has a hearing, although the manner in which the laws are worded seems to suggest that ex parte is the more commonly used method. Generally, “final” orders—that is, those after a hearing—last up to a year. Most states allow the restricted party to request a hearing to terminate the order early.23 Most states allow the original petitioner to request that the order be extended once the initial year has concluded.24The standards of proof required to obtain an order also vary from state to state. In ex parte pro-ceedings, ten states and the District of Columbia require only that a petitioner show “probable,” “good,” or “reasonable” cause for an order to attach.25 Of all evidentiary standards, these require the lowest amount of proof to meet their burden—and are especially easy to satisfy when the opposing party is not present to defend himself. This mallea-ble, easily cleared standard is inconsistent with the “extreme risk” the laws’ titles purport to require.2619California, Colorado, Connecticut, Delaware, District of Columbia, Florida, Hawaii, Illinois, Indiana, Maryland,Massachusetts, New Jersey, New York, Nevada, Oregon, Rhode Island, Washington, Vermont.20California (Cal. Penal Code § 18150), Colorado (C.R.S.A. § 13-14.5-103), Delaware (10 Del.C. § 7704. “Petitioner” defined as “[a] family member of the respondent...” 10 Del.C. § 7701), District of Columbia (DC ST §§ 7-2510.02, 7-2510.04. “Petitioner defined as “[r]elated to the respondent by blood, adop-tion, guardianship, marriage, domestic partnership, having a child in common, cohabitating, or maintaining a romantic, dating, or sexual relationship...” DC ST § 7-2510.01), Hawaii (2019 HI S.B. 1466, effective January 1, 2020. “Petitioner” defined to include “family or household member of the respon-dent...”), Illinois (430 Ill. Comp. Stat 67/35. “Petitioner” defined as “a family member of the respondent...” and “family member of the respondent” de-fined as “a spouse, parent, child, or step-child of the respondent, any other person related by blood or present marriage to the respondent, or a person who shares a common dwelling with the respondent.” 430 Ill. Comp. Stat 67/5), Maryland (Md. Code Ann., Pub. Safety § 5-601. “Petitioner” defined to include spouse, cohabitant, person related by blood, marriage or adoption, individual who has a common child, current dating or intimate partner, or current or former legal guardian. Id.), Massachusetts (M.G.L.A. 140 § 131R. “Petitioner” defined to include “family or household member.” Id.), Nevada (2019 NV AB 291, eff. Jan. 1, 2020. Sec. 11(2)), New Jersey (N.J. Stat. Ann. § 2C:58-21. eff. Sep. 1, 2019. “Petitioner” defined to include a “family or house-hold member.” Id.), New York (McKinney’s CPLR § 6341. eff. Aug. 24, 2019. “Petitioner” defined to include a “family or household member.” McKinney’s CPLR § 6340.), Oregon (Or. Rev. Stat. Ann. § 166.527), and Washington (Rev. Code Wash. § 7.94.030).21Florida (Fla. Stat. § 790.401), Rhode Island (R.I. Gen. Laws § 8-8.3-1. “Petitioner means a law enforcement agency...”), and Vermont (13 V.S.A. § 4053).22District of Columbia (DC ST § 7-2510.01. “Petitioner” defined to include a “mental health professional”.), Hawaii (2019 HI S.B. 1466, effective January 1, 2020. “Petitioner” defined to include “medical professional, educator, or colleague”), Maryland (Md. Code Ann., Pub. Safety § 5-601. “Petitioner” defined to include a “physician, psychologist, clinical social worker, licensed clinical professional counselor, clinical nurse specialist in psychiatric and mental health nursing, psychiatric nurse practitioner, licensed clinical marriage or family therapist, or health officer or designee of a health officer who has examined the individual...” ), and New York (McKinney’s CPLR § 6340. “Petitioner” defined to include “a school adminis-trator” or their designee, including a “school teacher, school guidance counselor, school psychologist, school social worker, school nurse, or other school personnel required to hold a teaching or administrative license or certificate, and full or part-time compensated school employee required to hold a temporary coaching license or professional coaching certificate.”).23Connecticut is currently the exception.24Connecticut lacks a renewal process. Indiana and New Jersey do not require renewals.25See supra, Note 4.26“Florida nevertheless allows judges to consider any evidence they deem relevant, and its “significant danger” test is inherently vague, notwith-standing its “clear and convincing” standard of proof. Some states are even looser, requiring only “a preponderance of the evidence,” meaning any likelihood greater than 50 percent that the respondent poses a “significant” risk.” ” Jacob Sullum, ‘Red Flag’ Laws Leave Gun Owners Defenseless, Reason.com, (Aug. 7, 2019)
https://reason.com/2019/08/07/red-flag-laws-leave-gun-owners-defenseless/.
FIREARMS POLICY COALITION6Moreover, despite being presented as an emergency solution to imminent crime, many of the laws require no imminence. In contrast, civil protection orders often do.27Whether, when, if, and to whom firearms are relinquished varies from state to state. Some states require that firearms, ammunition, and magazines be surrendered to law enforcement or a licensed dealer.28 Other states allow a person to relinquish their firearms to another individual, provided that person is not prohibited from pos-sessing firearms and ammunition or is a Federal Firearms Licensee.29Several states require that any license to carry a concealed firearm be relinquished at the same time.30In Colorado, the accused person’s concealed carry license is automatically revoked as soon as the initial petition is filed.31In ten states and the District of Columbia, ex parte orders can last from 14 to 21 days. The ex parte order will then automatically expire, unless a hearing is held, at which time a final order may be issued. In five states, the evidentiary standard to obtain a final order is still an extremely low, preponderance of the evidence standard.32 While most final orders may last up to one year—an excessive dura-tion for an emergency order—a final order obtained in New Jersey lasts indefinitely, unless a court orders the termination of the order after a hearing.33Potential for AbuseBecause red flag laws are rooted in third-party enforcement, there is an inherent potential for abuse by third parties. Concerns include fraudulent, malicious, or reckless petitions. Against a backdrop of “swatting,”34 and combined with the lax standards of proof, red flag laws threaten ordinary Americans with potentially deadly encounters with police.35 The laws, as presently written, invite domestic terrorists to weaponize the court system to strip the rights of their ene-mies or political opponents.36 The potential for abuse is exacerbated by a distinct lack of neces-27See Domestic Violence Civil Protection Orders (CPO); Statutory Summary Chart, American Bar Association, Mar. 2014,
https://bit.ly/2Mv6zLI.28California (Cal. Penal Code § 18120), Colorado (C.R.S.A. § 13-14.5-108), Connecticut (C.G.S.A. § 29-38c. Law Enforcement serves a search warrant to remove firearms. ), Delaware (10 Del.C. §§ 7703, 7704), District of Columbia (DC ST § 7-2510.07), Florida (Fla. Stat. § 790.401(7) ), Hawaii (2019 HI S.B. 1466, eff. Jan. 1, 2020.), 430 Ill. Comp. Stat 67/35(g)(2), Indiana (IC § 35-47-14-2), Maryland ( Md. Code Ann., Pub. Safety § 5-604), Massachusetts (M.G.L.A. 140 § 131S), New Jersey (N.J. Stat. Ann. § 2C:58-26), New York (McKinney’s CPLR § 6342 ), Oregon ( O.R.S. § 166.537 ), Rhode Island (R.I. Gen. Laws § 8-8.3-4), Vermont (13 V.S.A. § 4059 ), and Washington (Rev. Code Wash. § 7.94.090). 29California (Cal. Penal Code § 18120), Colorado (C.R.S.A. § 13-14.5-108), Connecticut (C.G.S.A. § 29-38c), Delaware (10 Del.C. §§ 7703, 7704), New Jersey (N.J. Stat. Ann. § 2C:58-26), Oregon (O.R.S. § 166.537 ), and Vermont (13 V.S.A. § 4059 ). 30 Colorado (C.R.S.A. § 13-14.5-108(1)(b)), District of Columbia (DC ST § 7-2510.07(b)), Florida (Fla. Stat. § 790.401(7), Massachusetts (M.G.L.A. 140 § 131S), Oregon (O.R.S. § 166.537 ), and Washington (Rev. Code Wash. § 7.94.090).31This exacerbates the due process concern, as the license itself is an interest lost immediately upon petition. See, e.g. , C.R.S.A. § 13-14.5-110(3).32“Under the preponderance standard, the burden of proof is met when the party with the burden convinces the fact finder that there is a greater than 50% chance that the claim is true.” Legal Information Institute, preponderance of the evidence,
https://www.law.cornell.edu/wex/preponderance_of_the_evidence (last visited Aug. 19, 2019).33N.J. Stat. Ann. § 2C:58-25.34“Swatting is a criminal harassment tactic of deceiving an emergency service (via such means as hoaxing an emergency services dispatcher) into sending a police and emergency service response team to another person’s address.”Swatting, Wikipedia, (last visited Aug. 18, 2019)
https://en.wikipedia.org/wiki/Swatting.35The enforcement of red flag laws have already claimed human life. In Maryland, law enforcement arrived at 61-year-old Gary Willis’s home at 5:17 a.m. to confiscate his firearms. Taken by surprise, Willis answered the door with his firearm in his hand. After a brief argument over the firearm, an officer fatally shot Willis. Maryland Officers Serving Red Flag Gun Removal Order Fatally Shoot Armed Man, CBS News, Nov. 6, 2018,
https://cbsn.ws/2zJ2sTw. 36This potential is summed up in a tweet by President Trump. “ Would Chris Cuomo be given a Red Flag for his recent rant? Filthy language and a total loss of control. He shouldn’t be allowed to have any weapon. He’s nuts!” @realDonaldTrump, TWITTER (Aug. 13, 2019, 12:01 AM),
https://bit.ly/2PgiAGS.This malleable, easily cleared standard is incon-sistent with the “extreme risk” the laws’ titles purport to require.
FIREARMS POLICY COALITION7sary penalties for those who bring fraudulent, malicious, or reckless petitions, and a lack of statutory civil remedy for victims of abuse.How Effective are Red Flag Laws?There is no conclusive evidence that red flag laws are effective in deterring violence.37 Given their “pre-crime” nature, it is extremely difficult to quantify what, if any, effect the laws have on deterring or preventing vio-lence. Moreover, in some instances, the laws are not even utilized or layed dormant for a period of time before being put into action.38What is the future of red flag laws under present law?Whether new laws sail through or are passed bit-terly, what’s certain is that repealing extant law is incredibly difficult. Marriage to new and unproven policy is problematic. Sunset provisions, which would enable legislatures to look back and assess the efficacy of laws, while not curative of prob-lems, are helpful.Despite the novelty of “red flag” laws, they have to-date failed to include a sunset provision. Given the perilous nature of establishing a system designed to eliminate constitutional rights through ex parte proceedings, a sunset provision would be prudent in case the system is ineffective and abused as many suspect it will be. Our Position & Our Position’s Connection to Values/PrinciplesFirearms Policy Coalition is firmly against the adoption and implemen-tation of red flag laws in all current forms. The laws deprive individuals of their right to due process of law before their rights are eliminated and property seized, a result that should offend anyone who values the Constitution and what it stands for. “Red flag” laws are riddled with constitutionally unsound principles, as well as practical issues. For one, there are no provi-sions for a court-appointed attorney to represent an accused individual during the proceedings, resulting in people potentially having to expend thousands of dollars to avail themselves of any defense. Many red flag laws lack provisions requiring the return of seized property after the expiration of an order. This means that individuals who seek the return of their rightfully owned property must take independent and expensive legal action in order to have their property returned.39 Making matters worse, such legal action is often fruitless, as govern-ments have not always been required to return fire-arms to their lawful owners.40 This makes red flag laws especially harmful to financially disadvantaged indi-viduals, who are most likely to be the target of abuse from the government,41 and also most likely to be vio-lently victimized.42 Far from protecting potential vic-tims, red flag laws manufacture a new class of victims, with a dangerous potential to disarm those most likely to need a competent mechanism of self-defense.M37Found. for Econ. Educ., (Aug. 10, 2019),
https://fee.org/articles/7-reasons-to-oppose-red-flag-guns-laws/ (“The evidence,” The New York Timesrecently reported, “for whether extreme risk protection orders work to prevent gun violence is inconclusive, according to a study by the RAND Corporation on the effectiveness of gun safety measures.”).38Peter Jamison & Peter Hermann, Some US lawmakers want a ‘red flag’ law. But states have had mixed results, Washington Post. (Aug. 8, 2019),
https://wapo.st/2HfHcJq (“California’s law went nearly unused for two years after its passage in 2016. Not a single request for a gun to be removed has been filed under the D.C. measure, which took effect at the beginning of this year.”).39Because there is no mandatory return of seized property, individual seeking their property back must formally petition the state for the return of their property, often requiring independent counsel to be successful. 40See City of San Jose v. Rodriguez , No. H040317, 2015 WL 1541988 (Cal. Ct. App. Apr. 2, 2015) (no constitutional violation when city seized and refused to return arms to citizen with Second Amendment rights intact); Walters v. Wolf, 660 F.3d 307 (8th Cir. 2011) (due process violation but no Second Amendment violation).41See Criminalization of Race and Poverty , Institute for Policy Studies,
https://ips-dc.org/criminalization-of-race-and-poverty/ (last visited Aug. 20, 2019).42Jim Norman, Young, Poor, Urban Dwellers Most Likely to Be Crime Victims, Gallup, Nov. 6, 2015,
https://bit.ly/2z