19–006 

112TH CONGRESS REPORT " ! HOUSE OF REPRESENTATIVES 1st Session 112–277 

NATIONAL RIGHT-TO-CARRY RECIPROCITY ACT OF 2011 

NOVEMBER 10, 2011.—Committed to the Committee of the Whole House on the 

State of the Union and ordered to be printed 

Mr. SMITH of Texas, from the Committee on the Judiciary, 

submitted the following 

R E P O R T 

together with 

DISSENTING VIEWS 

[To accompany H.R. 822] 

[Including cost estimate of the Congressional Budget Office] 

The Committee on the Judiciary, to whom was referred the bill 

(H.R. 822) to amend title 18, United States Code, to provide a national standard in accordance with which nonresidents of a State 

may carry concealed firearms in the State, having considered the 

same, report favorably thereon with an amendment and recommend that the bill as amended do pass. 

CONTENTS 

Page 

The Amendment ...................................................................................................... 2 

Purpose and Summary ............................................................................................ 2 

Background and Need for the Legislation ............................................................. 3 

Hearings ................................................................................................................... 5 

Committee Consideration ........................................................................................ 6 

Committee Votes ...................................................................................................... 6 

Committee Oversight Findings ............................................................................... 16 

New Budget Authority and Tax Expenditures ...................................................... 16 

Congressional Budget Office Cost Estimate .......................................................... 16 

Performance Goals and Objectives ......................................................................... 18 

Advisory on Earmarks ............................................................................................. 18 

Section-by-Section Analysis .................................................................................... 18 

Changes in Existing Law Made by the Bill, as Reported ..................................... 18 

Dissenting Views ..................................................................................................... 20 


jbell on DSK4TPTVN1PROD with REPORTS
2 

The Amendment 

The amendment is as follows: 

Strike all after the enacting clause and insert the following: 

SECTION 1. SHORT TITLE. 

This Act may be cited as the ‘‘National Right-to-Carry Reciprocity Act of 2011’’. 

SEC. 2. RECIPROCITY FOR THE CARRYING OF CERTAIN CONCEALED FIREARMS. 

(a) IN GENERAL.—Chapter 44 of title 18, United States Code, is amended by inserting after section 926C the following: 

‘‘§ 926D. Reciprocity for the carrying of certain concealed firearms 

‘‘(a) Notwithstanding any provision of the law of any State or political subdivision 

thereof (except as provided in subsection (b)), a person who is not prohibited by Federal law from possessing, transporting, shipping, or receiving a firearm, and who is 

carrying a valid identification document containing a photograph of the person, and 

a valid license or permit which is issued pursuant to the law of a State and which 

permits the person to carry a concealed firearm, may possess or carry a concealed 

handgun (other than a machinegun or destructive device) that has been shipped or 

transported in interstate or foreign commerce, in any State, other than the State 

of residence of the person, that— 

‘‘(1) has a statute that allows residents of the State to obtain licenses or permits to carry concealed firearms; or 

‘‘(2) does not prohibit the carrying of concealed firearms by residents of the 

State for lawful purposes. 

‘‘(b) The possession or carrying of a concealed handgun in a State under this section shall be subject to the same conditions and limitations, except as to eligibility 

to possess or carry, imposed by or under Federal or State law or the law of a political subdivision of a State, that apply to the possession or carrying of a concealed 

handgun by residents of the State or political subdivision who are licensed by the 

State or political subdivision to do so, or not prohibited by the State from doing so. 

‘‘(c) In subsection (a), the term ‘identification document’ means a document made 

or issued by or under the authority of the United States Government, a State, or 

a political subdivision of a State which, when completed with information concerning a particular individual, is of a type intended or commonly accepted for the 

purpose of identification of individuals.’’. 

(b) CLERICAL AMENDMENT.—The table of sections for such chapter is amended by 

inserting after the item relating to section 926C the following: 

‘‘926D. Reciprocity for the carrying of certain concealed firearms.’’. 

(c) EFFECTIVE DATE.—The amendments made by this section shall take effect 90 

days after the date of the enactment of this Act. 

SEC. 3. GAO AUDIT OF THE STATES’ CONCEALED CARRY PERMIT OR LICENSING REQUIREMENTS FOR NON-RESIDENTS. 

(a) The Comptroller General of the United States shall conduct an audit of— 

(1) the laws and regulations of each State that authorize the issuance of a 

valid permit or license to permit a person, other than a resident of such State, 

to possess or carry a concealed firearm, including a description of the permitting 

or licensing requirements of each State that issues concealed carry permits or 

licenses to persons other than a resident of such State; 

(2) the number of such valid permits or licenses issued or denied (and the 

basis for such denials) by each State to persons other than a resident of such 

State; and 

(3) the effectiveness of such State laws and regulations in protecting the public safety. 

(b) Not later than 1 year after the date of enactment of this Act, the Comptroller 

General shall submit to Congress a report on the findings of the study conducted 

under subsection (a). 

Purpose and Summary 

H.R. 822 allows persons with valid state-issued concealed firearm 

permits or licenses to carry a concealed firearm in any other state 

that also issues concealed firearm permits or licenses, or in any 

other state that does not generally prohibit the carrying of concealed firearms. 


jbell on DSK4TPTVN1PROD with REPORTS
3 

1See 18 U.S.C. §§ 926B and 926C. 2See P.L. 111–272. 

Background and Need for the Legislation 

I. THE CURRENT STATUS OF CONCEALED CARRY LAWS

In a 2008 opinion striking down Washington D.C.’s district-wide 

handgun ban, the U.S. Supreme Court recognized ‘‘that the Second 

Amendment conferred an individual right to keep and bear arms’’ 

that stems in large part from the right to protect oneself, as well 

as ‘‘one’s home and family,’’ from harm. See District of Columbia 

v. Heller, 554 U.S. 570 (2008). Specifically, the Heller decision 

found that the right to self defense, as opposed to the creation of 

a militia or other principles, ‘‘was the central component of the 

right itself.’’ Id. at 599 (emphasis in original). More recently, in 

McDonald v. City of Chicago, 561 U.S. ll, 130 S.Ct. 3020 (2010), 

the Supreme Court clarified that the Second Amendment rights 

discussed in Heller also extend to the states. 

Forty-nine states currently permit concealed carry in some manner. Thirty-five states have ‘‘shall issue’’ permit laws, which generally require states to issue a concealed carry permit or license to 

people who meet the legal requirements. Ten states—plus the Virgin Islands, Puerto Rico, and Guam—have ‘‘may issue’’ or discretionary permit laws that are administered in varying ways. Four 

states—Vermont, Arizona, Alaska, and Wyoming—permit the carrying of a concealed weapon without any permit or license (although Arizona, Alaska, and Wyoming also have a permitting process in place). Illinois, the District of Columbia, the Northern Marianas Islands, and American Samoa prohibit concealed carry. 

Twenty-five states allow non-residents to apply for a concealed 

carry permit or license, and Vermont allows non-residents to carry 

without a permit while in the state. In most instances, the process 

for permitting in-state and out-of-state persons is the same. However, some states apply a stricter permitting process to out-of-state 

residents, including requiring that the person have a valid concealed carry permit from their home state. 

A majority of states currently extend reciprocal concealed carry 

privileges to varying degrees to the residents of other states. Fourteen states grant outright recognition of all valid permits issued by 

another state. Ten states automatically recognize permits from 

other states that also recognize their permits. Sixteen states will 

recognize another state’s concealed carry permit if certain conditions are met. Only ten states do not recognize a concealed carry 

permit issued by another state in any circumstance, although many 

of these states do allow non-residents to apply for permits to carry 

a concealed handgun in the state. 

Under current Federal law, certain active-duty and retired law 

enforcement officers are permitted to carry concealed firearms 

across state lines, even while off duty.1 In 2010, Congress passed 

and President Obama signed legislation to expand the categories of 

current and retired law enforcement officers who are entitled to 

carry concealed weapons across state lines.2 H.R. 822 would extend 

the ability to carry concealed firearms across state lines to other 


jbell on DSK4TPTVN1PROD with REPORTS
4 

3See P.L. 111–24. 4See http://www.nraila.org/Issues/FactSheets/Read.aspx?id=189&issue=003. 5 John R. Lott, Jr. and David B. Mustard, Crime, Deterrence, and Right to Carry Concealed 

Handguns, 26 J. LEGAL STUD. 1, 19 (1997). This study also found that concealed carry laws and 

the accompanying decline in violence crime lead to significant financial savings. Id. at 64 (‘‘The 

estimated annual gain in 1992 from allowing concealed handguns was over $5.74 billion.’’). 6See Don B. Kates, Would Banning Firearms Reduce Murder and Suicide?, 30 HARV. J.L. &

PUB. POL’Y 649, 658 n.30 (2007) (‘‘Several critics have now replicated Lott’s work using additional or different data, additional control variables, or new or different statistical techniques 

they deem superior to those Lott used. Interestingly, the replications all confirm Lott’s general 

conclusions; some even find that Lott underestimated the crime-reductive effects of allowing 

good citizens to carry concealed guns.’’). 7See Gary Kleck & Marc Gertz, Armed Resistance to Crime: The Prevalence and Nature of 

Self Defense with a Gun, 86 J. CRIM. L. & CRIMINOLOGY 150, 164 (1995). 8 Id. at 173. 9See Florida Department of Agriculture and Consumer Services, Division of Licensing, Concealed Weapon/Firearm Summary Report, http://licgweb.doacs.state.fl.us/stats/cwl 

monthly.html. 

law-abiding citizens. President Obama also signed legislation in 

2009 to allow the carrying of concealed weapons in Federal parks.3

II. EFFECTS OF CONCEALED CARRY ON PUBLIC SAFETY

While there is disagreement over the benefits of carrying concealed weapons, many believe that robust concealed carry laws ultimately deter crime by making criminal acts much more risky and 

costly for potential law breakers. Statistics show a connection between concealed carry laws and a decrease in violent crime rates. 

The National Rifle Association estimates, based on data from the 

FBI’s Annual Uniform Crime Report, that ‘‘right-to-carry’’ states 

(i.e., those that widely allow concealed carry) have 22 percent lower 

total violent crime rates, 30 percent lower murder rates, 46 percent 

lower robbery rates, and 12 percent lower aggravated assault rates, 

as compared to the rest of the country.4 A study of the effect of concealed carry laws on crime rates, published in 1997, estimated that 

‘‘[w]hen state concealed handgun laws went into effect in a county, 

murders fell by 7.65 percent, and rapes and aggravated assaults 

fell by 5 and 7 percent.’’ 5 The general conclusion of this study, that 

concealed weapons deter crime, has been replicated and confirmed 

by other scholars.6

The use of firearms in self defense is prevalent. According to the 

National Self Defense Survey, conducted by criminologists from 

Florida State University, Americans use guns in self defense an estimated 2.2 to 2.5 million times a year, or every 13 seconds.7 This 

same study found that, in general, simply brandishing a gun or firing a warning shot is sufficient to defend against an attacker in 

most cases of self defense involving a firearm. Only 24 percent of 

people surveyed reported firing a gun in self defense, and just 8 

percent reported wounding an assailant with a gun.8

There is also little evidence that law-abiding permit holders are 

a threat to public safety. The state of Florida, which has issued 

over 2 million concealed carry permits since it adopted a ‘‘right-tocarry’’ law in 1987, has revoked just 6,400 permits (just 0.3 percent 

of the total issued permits) and just 168 concealed carry permits 

were revoked due to the use of a firearm in a crime (just 0.008 percent).9

III. NATIONAL RECIPROCITY UNDER H.R. 822

H.R. 822 would allow persons with valid state-issued concealed 

firearm permits or licenses to carry a concealed firearm in all other 


jbell on DSK4TPTVN1PROD with REPORTS
5 

states that also issue concealed firearm permits or licenses, or in 

any other state that does not generally prohibit the carrying of concealed firearms. This legislation would not create a national licensing scheme, but rather would require states that currently permit 

people to carry concealed firearms to recognize other states’ valid 

concealed carry permits. 

H.R. 822, as clarified by the substitute manager’s amendment, 

does not affect a state’s ability to set eligibility requirements for its 

own residents. The bill instead makes clear that a person cannot 

use this Federal grant of reciprocity to carry a concealed weapon 

in his or her own state of residence under another state’s permit 

or license, unless their own state’s laws permit this. H.R. 822 also 

does not impact state laws governing how concealed firearms are 

possessed or carried within the various states. All state, federal, 

and local laws regarding the possession and carrying of a concealed 

handgun that would apply to a resident of a state will also apply 

in equal force to a non-resident. A non-resident who is able to show 

both a valid identification document and a valid concealed carry 

permit or license will be permitted to carry a concealed firearm in 

the same manner as a resident holding a general-use permit or license. 

H.R. 822 addresses concerns regarding law enforcement’s ability 

to confirm the validity of an out-of-state concealed carry permit by 

requiring that a person show both a valid government-issued identification document, such as a license or passport, and a valid concealed carry license or permit. The states are also currently able 

to verify the validity of out-of-state concealed permits. The Nlets 

system, formerly the National Law Enforcement Teletype System, 

permits federal, state, and local law enforcement to query handgun 

permit information for 12 states that have elected to participate in 

the program. Law enforcement can also use Nlets to send inquiries 

regarding concealed carry permits directly to out-of-state agencies 

that issue permits but do not participate in the Nlets concealed 

carry program. Forty states currently grant some form of reciprocity for out-of-state concealed carry permits and all of the states 

are subject to the Firearms Owners‘ Protection Act’s Safe Passage 

Provision, codified at 18 U.S.C. § 926A, which provides a process by 

which non-residents can transport lawful firearms through states 

where they could not otherwise carry the firearm. Accordingly, law 

enforcement is already very familiar with handling and verifying 

firearms carried by non-residents. 

Hearings 

The Committee’s Subcommittee on Crime, Terrorism, and Homeland Security held 1 day of hearings on H.R. 822 on September 13, 

2011. Testimony was received from Joyce Lee Malcolm, Professor, 

George Mason University School of Law; David Kopel, Research Director, Independence Institute and Adjunct Professor, Denver University Sturm College of Law; and Philadelphia Police Commissioner Charles Ramsey, with additional material submitted by the 

International Association of Chiefs of Police, Mayors Against Illegal 

Guns, the Minnesota Chiefs of Police, and the Virginia Association 

of Chiefs of Police. 


jbell on DSK4TPTVN1PROD with REPORTS
6 

Committee Consideration 

On October 25, the Committee met in open session and ordered 

the bill H.R. 822 favorably reported, with an amendment, by a rollcall vote of 19 to 11, a quorum being present. 

Committee Votes 

In compliance with clause 3(b) of rule XIII of the Rules of the 

House of Representatives, the Committee advises that the following 

rollcall votes occurred during the Committee’s consideration of H.R. 

822. 

1. An amendment by Mr. Conyers to strike the provision stating 

that state eligibility requirements do not apply to non-residents. 

Failed 12 to 18. 

ROLLCALL NO. 1 

Ayes Nays Present 

Mr. Smith, Chairman ........................................................................................ X 

Mr. Sensenbrenner, Jr. ......................................................................................

Mr. Coble ........................................................................................................... X 

Mr. Gallegly ....................................................................................................... X 

Mr. Goodlatte .................................................................................................... X 

Mr. Lungren ....................................................................................................... X 

Mr. Chabot ........................................................................................................ X 

Mr. Issa .............................................................................................................

Mr. Pence ..........................................................................................................

Mr. Forbes ......................................................................................................... X 

Mr. King ............................................................................................................ X 

Mr. Franks ......................................................................................................... X 

Mr. Gohmert ...................................................................................................... X 

Mr. Jordan ......................................................................................................... X 

Mr. Poe .............................................................................................................. X 

Mr. Chaffetz ...................................................................................................... X 

Mr. Griffin ......................................................................................................... X 

Mr. Marino ......................................................................................................... X 

Mr. Gowdy ......................................................................................................... X 

Mr. Ross ............................................................................................................

Ms. Adams ........................................................................................................ X 

Mr. Quayle ......................................................................................................... X 

Mr. Amodei ........................................................................................................

Mr. Conyers, Jr., Ranking Member .................................................................... X 

Mr. Berman ....................................................................................................... X 

Mr. Nadler ......................................................................................................... X 

Mr. Scott ........................................................................................................... X 

Mr. Watt ............................................................................................................ X 

Ms. Lofgren ....................................................................................................... X 

Ms. Jackson Lee ................................................................................................ X 

Ms. Waters ........................................................................................................ X 

Mr. Cohen .......................................................................................................... X 

Mr. Johnson ....................................................................................................... X 

Mr. Pierluisi ....................................................................................................... X 

Mr. Quigley ........................................................................................................

Ms. Chu ............................................................................................................. X 

Mr. Deutch ........................................................................................................

Ms. Sa ́nchez ......................................................................................................

(Vacant) ............................................................................................................

Total ................................................................................................ 12 18 

2. An amendment by Mr. Gohmert to add the District of Columbia to jurisdictions eligible for reciprocity for the carrying of concealed firearms. Failed 3 to 24, with one Member reported as 

present. 


jbell on DSK4TPTVN1PROD with REPORTS
7 

ROLLCALL NO. 2 

Ayes Nays Present 

Mr. Smith, Chairman ........................................................................................ X 

Mr. Sensenbrenner, Jr. ......................................................................................

Mr. Coble ........................................................................................................... X 

Mr. Gallegly ....................................................................................................... X 

Mr. Goodlatte .................................................................................................... X 

Mr. Lungren ....................................................................................................... X 

Mr. Chabot ........................................................................................................

Mr. Issa .............................................................................................................

Mr. Pence ..........................................................................................................

Mr. Forbes ......................................................................................................... X 

Mr. King ............................................................................................................ X 

Mr. Franks ......................................................................................................... X 

Mr. Gohmert ...................................................................................................... X 

Mr. Jordan ......................................................................................................... X 

Mr. Poe .............................................................................................................. X 

Mr. Chaffetz ...................................................................................................... X 

Mr. Griffin ......................................................................................................... X 

Mr. Marino ......................................................................................................... X 

Mr. Gowdy ......................................................................................................... X 

Mr. Ross ............................................................................................................

Ms. Adams ........................................................................................................ X 

Mr. Quayle ......................................................................................................... X 

Mr. Amodei ........................................................................................................ X 

Mr. Conyers, Jr., Ranking Member .................................................................... X 

Mr. Berman .......................................................................................................

Mr. Nadler ......................................................................................................... X 

Mr. Scott ........................................................................................................... X 

Mr. Watt ............................................................................................................ X 

Ms. Lofgren ....................................................................................................... X 

Ms. Jackson Lee ................................................................................................ X 

Ms. Waters ........................................................................................................ X 

Mr. Cohen .......................................................................................................... X 

Mr. Johnson .......................................................................................................

Mr. Pierluisi ....................................................................................................... X 

Mr. Quigley ........................................................................................................ X 

Ms. Chu .............................................................................................................

Mr. Deutch ........................................................................................................

Ms. Sa ́nchez ......................................................................................................

(Vacant) ............................................................................................................

Total ................................................................................................ 3 24 1 

3. An amendment by Mr. Nadler to apply State law regarding 

the possession and carrying of concealed handguns for those convicted of a sex offense against a child. Failed 11 to 17. 

ROLLCALL NO. 3 

Ayes Nays Present 

Mr. Smith, Chairman ........................................................................................ X 

Mr. Sensenbrenner, Jr. ...................................................................................... X 

Mr. Coble ........................................................................................................... X 

Mr. Gallegly ....................................................................................................... X 

Mr. Goodlatte .................................................................................................... X 

Mr. Lungren ....................................................................................................... X 

Mr. Chabot ........................................................................................................

Mr. Issa .............................................................................................................

Mr. Pence ..........................................................................................................

Mr. Forbes ......................................................................................................... X 

Mr. King ............................................................................................................ X 

Mr. Franks ......................................................................................................... X 

Mr. Gohmert ......................................................................................................

Mr. Jordan ......................................................................................................... X 


jbell on DSK4TPTVN1PROD with REPORTS
8 

ROLLCALL NO. 3—Continued 

Ayes Nays Present 

Mr. Poe .............................................................................................................. X 

Mr. Chaffetz ...................................................................................................... X 

Mr. Griffin ......................................................................................................... X 

Mr. Marino ......................................................................................................... X 

Mr. Gowdy ......................................................................................................... X 

Mr. Ross ............................................................................................................

Ms. Adams ........................................................................................................ X 

Mr. Quayle ......................................................................................................... X 

Mr. Amodei ........................................................................................................ X 

Mr. Conyers, Jr., Ranking Member .................................................................... X 

Mr. Berman .......................................................................................................

Mr. Nadler ......................................................................................................... X 

Mr. Scott ........................................................................................................... X 

Mr. Watt ............................................................................................................ X 

Ms. Lofgren ....................................................................................................... X 

Ms. Jackson Lee ................................................................................................

Ms. Waters ........................................................................................................

Mr. Cohen .......................................................................................................... X 

Mr. Johnson ....................................................................................................... X 

Mr. Pierluisi ....................................................................................................... X 

Mr. Quigley ........................................................................................................ X 

Ms. Chu ............................................................................................................. X 

Mr. Deutch ........................................................................................................

Ms. Sa ́nchez ......................................................................................................

(Vacant) ............................................................................................................

Total ................................................................................................ 11 17 

4. An amendment by Mr. Nadler to prohibit someone known or 

suspected to be a terrorist from possessing or carrying a handgun 

under the bill. Failed 10 to 19. 

ROLLCALL NO. 4 

Ayes Nays Present 

Mr. Smith, Chairman ........................................................................................ X 

Mr. Sensenbrenner, Jr. ...................................................................................... X 

Mr. Coble ...........................................................................................................

Mr. Gallegly ....................................................................................................... X 

Mr. Goodlatte ....................................................................................................

Mr. Lungren ....................................................................................................... X 

Mr. Chabot ........................................................................................................ X 

Mr. Issa .............................................................................................................

Mr. Pence .......................................................................................................... X 

Mr. Forbes ......................................................................................................... X 

Mr. King ............................................................................................................ X 

Mr. Franks ......................................................................................................... X 

Mr. Gohmert ......................................................................................................

Mr. Jordan ......................................................................................................... X 

Mr. Poe .............................................................................................................. X 

Mr. Chaffetz ...................................................................................................... X 

Mr. Griffin ......................................................................................................... X 

Mr. Marino ......................................................................................................... X 

Mr. Gowdy ......................................................................................................... X 

Mr. Ross ............................................................................................................ X 

Ms. Adams ........................................................................................................ X 

Mr. Quayle ......................................................................................................... X 

Mr. Amodei ........................................................................................................ X 

Mr. Conyers, Jr., Ranking Member ....................................................................

Mr. Berman .......................................................................................................

Mr. Nadler ......................................................................................................... X 

Mr. Scott ........................................................................................................... X 

Mr. Watt ............................................................................................................ X 


jbell on DSK4TPTVN1PROD with REPORTS
9 

ROLLCALL NO. 4—Continued 

Ayes Nays Present 

Ms. Lofgren ....................................................................................................... X 

Ms. Jackson Lee ................................................................................................ X 

Ms. Waters ........................................................................................................

Mr. Cohen ..........................................................................................................

Mr. Johnson ....................................................................................................... X 

Mr. Pierluisi ....................................................................................................... X 

Mr. Quigley ........................................................................................................ X 

Ms. Chu ............................................................................................................. X 

Mr. Deutch ........................................................................................................ X 

Ms. Sa ́nchez ......................................................................................................

(Vacant) ............................................................................................................

Total ................................................................................................ 10 19 

5. An amendment by Ms. Jackson Lee to subject anyone convicted of stalking or unlawful surveillance to any state laws that 

limit their ability to possess or carry a concealed weapon. Failed 

9 to 15. 

ROLLCALL NO. 5 

Ayes Nays Present 

Mr. Smith, Chairman ........................................................................................ X 

Mr. Sensenbrenner, Jr. ...................................................................................... X 

Mr. Coble ...........................................................................................................

Mr. Gallegly ....................................................................................................... X 

Mr. Goodlatte ....................................................................................................

Mr. Lungren ....................................................................................................... X 

Mr. Chabot ........................................................................................................ X 

Mr. Issa .............................................................................................................

Mr. Pence .......................................................................................................... X 

Mr. Forbes ......................................................................................................... X 

Mr. King ............................................................................................................ X 

Mr. Franks ......................................................................................................... X 

Mr. Gohmert ......................................................................................................

Mr. Jordan .........................................................................................................

Mr. Poe ..............................................................................................................

Mr. Chaffetz ...................................................................................................... X 

Mr. Griffin ......................................................................................................... X 

Mr. Marino ......................................................................................................... X 

Mr. Gowdy ......................................................................................................... X 

Mr. Ross ............................................................................................................ X 

Ms. Adams ........................................................................................................

Mr. Quayle ......................................................................................................... X 

Mr. Amodei ........................................................................................................

Mr. Conyers, Jr., Ranking Member ....................................................................

Mr. Berman .......................................................................................................

Mr. Nadler ......................................................................................................... X 

Mr. Scott ........................................................................................................... X 

Mr. Watt ............................................................................................................ X 

Ms. Lofgren ....................................................................................................... X 

Ms. Jackson Lee ................................................................................................ X 

Ms. Waters ........................................................................................................

Mr. Cohen ..........................................................................................................

Mr. Johnson ....................................................................................................... X 

Mr. Pierluisi ....................................................................................................... X 

Mr. Quigley ........................................................................................................ X 

Ms. Chu .............................................................................................................

Mr. Deutch ........................................................................................................ X 

Ms. Sa ́nchez ......................................................................................................

(Vacant) ............................................................................................................

Total ................................................................................................ 9 15 


jbell on DSK4TPTVN1PROD with REPORTS
10 

6. An amendment by Mr. Johnson to require the possession or 

carrying of a concealed handgun in a state to be subject to that 

state’s law regarding concealed carry by any person subject to a domestic violence protection order within the past 10 years. Failed 12 

to 14. 

ROLLCALL NO. 6 

Ayes Nays Present 

Mr. Smith, Chairman ........................................................................................ X 

Mr. Sensenbrenner, Jr. ......................................................................................

Mr. Coble ........................................................................................................... X 

Mr. Gallegly ....................................................................................................... X 

Mr. Goodlatte ....................................................................................................

Mr. Lungren ....................................................................................................... X 

Mr. Chabot ........................................................................................................ X 

Mr. Issa .............................................................................................................

Mr. Pence ..........................................................................................................

Mr. Forbes ......................................................................................................... X 

Mr. King ............................................................................................................ X 

Mr. Franks ......................................................................................................... X 

Mr. Gohmert ......................................................................................................

Mr. Jordan .........................................................................................................

Mr. Poe ..............................................................................................................

Mr. Chaffetz ...................................................................................................... X 

Mr. Griffin ......................................................................................................... X 

Mr. Marino ......................................................................................................... X 

Mr. Gowdy ......................................................................................................... X 

Mr. Ross ............................................................................................................ X 

Ms. Adams ........................................................................................................ X 

Mr. Quayle .........................................................................................................

Mr. Amodei ........................................................................................................

Mr. Conyers, Jr., Ranking Member .................................................................... X 

Mr. Berman .......................................................................................................

Mr. Nadler ......................................................................................................... X 

Mr. Scott ........................................................................................................... X 

Mr. Watt ............................................................................................................ X 

Ms. Lofgren ....................................................................................................... X 

Ms. Jackson Lee ................................................................................................ X 

Ms. Waters ........................................................................................................

Mr. Cohen .......................................................................................................... X 

Mr. Johnson ....................................................................................................... X 

Mr. Pierluisi .......................................................................................................

Mr. Quigley ........................................................................................................ X 

Ms. Chu ............................................................................................................. X 

Mr. Deutch ........................................................................................................ X 

Ms. Sa ́nchez ...................................................................................................... X 

(Vacant) ............................................................................................................

Total ................................................................................................ 12 14 

7. An amendment by Mr. Quigley on behalf of Mr. Pierluisi to 

require that a permit to carry a concealed firearm include the permit holder’s full legal name, date of birth, gender, digital photograph, address of principal residence, and signature; the permit’s 

unique issuance number; and physical security features. Failed 12 

to 15. 

ROLLCALL NO. 7 

Ayes Nays Present 

Mr. Smith, Chairman ........................................................................................ X 

Mr. Sensenbrenner, Jr. ......................................................................................

Mr. Coble ...........................................................................................................


jbell on DSK4TPTVN1PROD with REPORTS
11 

ROLLCALL NO. 7—Continued 

Ayes Nays Present 

Mr. Gallegly ....................................................................................................... X 

Mr. Goodlatte ....................................................................................................

Mr. Lungren ....................................................................................................... X 

Mr. Chabot ........................................................................................................ X 

Mr. Issa .............................................................................................................

Mr. Pence ..........................................................................................................

Mr. Forbes ......................................................................................................... X 

Mr. King ............................................................................................................ X 

Mr. Franks ......................................................................................................... X 

Mr. Gohmert ......................................................................................................

Mr. Jordan .........................................................................................................

Mr. Poe .............................................................................................................. X 

Mr. Chaffetz ...................................................................................................... X 

Mr. Griffin ......................................................................................................... X 

Mr. Marino ......................................................................................................... X 

Mr. Gowdy ......................................................................................................... X 

Mr. Ross ............................................................................................................ X 

Ms. Adams ........................................................................................................ X 

Mr. Quayle .........................................................................................................

Mr. Amodei ........................................................................................................ X 

Mr. Conyers, Jr., Ranking Member .................................................................... X 

Mr. Berman .......................................................................................................

Mr. Nadler ......................................................................................................... X 

Mr. Scott ........................................................................................................... X 

Mr. Watt ............................................................................................................ X 

Ms. Lofgren ....................................................................................................... X 

Ms. Jackson Lee ................................................................................................ X 

Ms. Waters ........................................................................................................

Mr. Cohen .......................................................................................................... X 

Mr. Johnson ....................................................................................................... X 

Mr. Pierluisi .......................................................................................................

Mr. Quigley ........................................................................................................ X 

Ms. Chu ............................................................................................................. X 

Mr. Deutch ........................................................................................................ X 

Ms. Sa ́nchez ...................................................................................................... X 

(Vacant) ............................................................................................................

Total ................................................................................................ 12 15 

8. An amendment by Mr. Quigley to require to possession or carrying of a concealed handgun in a State be subject to any State law 

limiting the eligibility to possess or carry a concealed handgun for 

anyone convicted of assaulted or impersonating a law enforcement 

officer. Failed 11 to 16. 

ROLLCALL NO. 8 

Ayes Nays Present 

Mr. Smith, Chairman ........................................................................................ X 

Mr. Sensenbrenner, Jr. ...................................................................................... X 

Mr. Coble ...........................................................................................................

Mr. Gallegly .......................................................................................................

Mr. Goodlatte .................................................................................................... X 

Mr. Lungren ....................................................................................................... X 

Mr. Chabot ........................................................................................................ X 

Mr. Issa ............................................................................................................. X 

Mr. Pence ..........................................................................................................

Mr. Forbes ......................................................................................................... X 

Mr. King ............................................................................................................

Mr. Franks ......................................................................................................... X 

Mr. Gohmert ...................................................................................................... X 

Mr. Jordan .........................................................................................................


jbell on DSK4TPTVN1PROD with REPORTS
12 

ROLLCALL NO. 8—Continued 

Ayes Nays Present 

Mr. Poe ..............................................................................................................

Mr. Chaffetz ...................................................................................................... X 

Mr. Griffin ......................................................................................................... X 

Mr. Marino ......................................................................................................... X 

Mr. Gowdy ......................................................................................................... X 

Mr. Ross ............................................................................................................ X 

Ms. Adams ........................................................................................................

Mr. Quayle ......................................................................................................... X 

Mr. Amodei ........................................................................................................ X 

Mr. Conyers, Jr., Ranking Member .................................................................... X 

Mr. Berman .......................................................................................................

Mr. Nadler ......................................................................................................... X 

Mr. Scott ........................................................................................................... X 

Mr. Watt ............................................................................................................ X 

Ms. Lofgren ....................................................................................................... X 

Ms. Jackson Lee ................................................................................................

Ms. Waters ........................................................................................................

Mr. Cohen .......................................................................................................... X 

Mr. Johnson ....................................................................................................... X 

Mr. Pierluisi .......................................................................................................

Mr. Quigley ........................................................................................................ X 

Ms. Chu ............................................................................................................. X 

Mr. Deutch ........................................................................................................ X 

Ms. Sa ́nchez ...................................................................................................... X 

(Vacant) ............................................................................................................

Total ................................................................................................ 11 16 

9. An amendment by Ms. Chu to require that the possession of 

carrying of a concealed handgun in a state be subject to that state’s 

law regarding concealed carry by someone convicted of selling a 

controlled substance to a minor. Failed 11 to 17. 

ROLLCALL NO. 9 

Ayes Nays Present 

Mr. Smith, Chairman ........................................................................................ X 

Mr. Sensenbrenner, Jr. ...................................................................................... X 

Mr. Coble ...........................................................................................................

Mr. Gallegly .......................................................................................................

Mr. Goodlatte .................................................................................................... X 

Mr. Lungren ....................................................................................................... X 

Mr. Chabot ........................................................................................................ X 

Mr. Issa ............................................................................................................. X 

Mr. Pence ..........................................................................................................

Mr. Forbes ......................................................................................................... X 

Mr. King ............................................................................................................ X 

Mr. Franks ......................................................................................................... X 

Mr. Gohmert ......................................................................................................

Mr. Jordan .........................................................................................................

Mr. Poe .............................................................................................................. X 

Mr. Chaffetz ...................................................................................................... X 

Mr. Griffin ......................................................................................................... X 

Mr. Marino ......................................................................................................... X 

Mr. Gowdy ......................................................................................................... X 

Mr. Ross ............................................................................................................ X 

Ms. Adams ........................................................................................................

Mr. Quayle ......................................................................................................... X 

Mr. Amodei ........................................................................................................ X 

Mr. Conyers, Jr., Ranking Member .................................................................... X 

Mr. Berman .......................................................................................................

Mr. Nadler ......................................................................................................... X 

Mr. Scott ........................................................................................................... X 


jbell on DSK4TPTVN1PROD with REPORTS
13 

ROLLCALL NO. 9—Continued 

Ayes Nays Present 

Mr. Watt ............................................................................................................ X 

Ms. Lofgren ....................................................................................................... X 

Ms. Jackson Lee ................................................................................................

Ms. Waters ........................................................................................................ X 

Mr. Cohen .......................................................................................................... X 

Mr. Johnson ....................................................................................................... X 

Mr. Pierluisi .......................................................................................................

Mr. Quigley ........................................................................................................ X 

Ms. Chu ............................................................................................................. X 

Mr. Deutch ........................................................................................................

Ms. Sa ́nchez ...................................................................................................... X 

(Vacant) ............................................................................................................

Total ................................................................................................ 11 17 

10. An amendment by Mr. Lungren to require a GAO audit of 

the laws of each state that issues concealed carry permits or licenses to non-residents. Passed 13 to 8. 

ROLLCALL NO. 10 

Ayes Nays Present 

Mr. Smith, Chairman ........................................................................................ X 

Mr. Sensenbrenner, Jr. ......................................................................................

Mr. Coble ...........................................................................................................

Mr. Gallegly .......................................................................................................

Mr. Goodlatte .................................................................................................... X 

Mr. Lungren ....................................................................................................... X 

Mr. Chabot ........................................................................................................ X 

Mr. Issa ............................................................................................................. X 

Mr. Pence ..........................................................................................................

Mr. Forbes ......................................................................................................... X 

Mr. King ............................................................................................................ X 

Mr. Franks ......................................................................................................... X 

Mr. Gohmert ......................................................................................................

Mr. Jordan .........................................................................................................

Mr. Poe ..............................................................................................................

Mr. Chaffetz ...................................................................................................... X 

Mr. Griffin ......................................................................................................... X 

Mr. Marino ......................................................................................................... X 

Mr. Gowdy ......................................................................................................... X 

Mr. Ross ............................................................................................................

Ms. Adams ........................................................................................................

Mr. Quayle ......................................................................................................... X 

Mr. Amodei ........................................................................................................ X 

Mr. Conyers, Jr., Ranking Member .................................................................... X 

Mr. Berman .......................................................................................................

Mr. Nadler ......................................................................................................... X 

Mr. Scott ........................................................................................................... X 

Mr. Watt ............................................................................................................ X 

Ms. Lofgren .......................................................................................................

Ms. Jackson Lee ................................................................................................

Ms. Waters ........................................................................................................ X 

Mr. Cohen ..........................................................................................................

Mr. Johnson ....................................................................................................... X 

Mr. Pierluisi .......................................................................................................

Mr. Quigley ........................................................................................................

Ms. Chu .............................................................................................................

Mr. Deutch ........................................................................................................

Ms. Sa ́nchez ...................................................................................................... X 

(Vacant) ............................................................................................................

Total ................................................................................................ 13 8 


jbell on DSK4TPTVN1PROD with REPORTS
14 

11. An amendment by Mr. Cohen to limit the reciprocity extended by H.R. 822 to persons over the age of 21. Failed 4 to 12. 

ROLLCALL NO. 11 

Ayes Nays Present 

Mr. Smith, Chairman ........................................................................................ X 

Mr. Sensenbrenner, Jr. ...................................................................................... X 

Mr. Coble ...........................................................................................................

Mr. Gallegly .......................................................................................................

Mr. Goodlatte .................................................................................................... X 

Mr. Lungren .......................................................................................................

Mr. Chabot ........................................................................................................ X 

Mr. Issa .............................................................................................................

Mr. Pence ..........................................................................................................

Mr. Forbes ......................................................................................................... X 

Mr. King ............................................................................................................ X 

Mr. Franks ......................................................................................................... X 

Mr. Gohmert ......................................................................................................

Mr. Jordan .........................................................................................................

Mr. Poe ..............................................................................................................

Mr. Chaffetz ...................................................................................................... X 

Mr. Griffin ......................................................................................................... X 

Mr. Marino ......................................................................................................... X 

Mr. Gowdy .........................................................................................................

Mr. Ross ............................................................................................................

Ms. Adams ........................................................................................................ X 

Mr. Quayle ......................................................................................................... X 

Mr. Amodei ........................................................................................................

Mr. Conyers, Jr., Ranking Member ....................................................................

Mr. Berman .......................................................................................................

Mr. Nadler .........................................................................................................

Mr. Scott ........................................................................................................... X 

Mr. Watt ............................................................................................................

Ms. Lofgren .......................................................................................................

Ms. Jackson Lee ................................................................................................ X 

Ms. Waters ........................................................................................................

Mr. Cohen .......................................................................................................... X 

Mr. Johnson ....................................................................................................... X 

Mr. Pierluisi .......................................................................................................

Mr. Quigley ........................................................................................................

Ms. Chu .............................................................................................................

Mr. Deutch ........................................................................................................

Ms. Sa ́nchez ......................................................................................................

(Vacant) ............................................................................................................

Total ................................................................................................ 4 12 

12. An amendment by Ms. Jackson Lee to require states to 

maintain a database of all concealed carry permits and licenses 

issued by the states and make that database available to law enforcement 24-hours a day. Failed 3 to 12. 

ROLLCALL NO. 12 

Ayes Nays Present 

Mr. Smith, Chairman ........................................................................................ X 

Mr. Sensenbrenner, Jr. ...................................................................................... X 

Mr. Coble ...........................................................................................................

Mr. Gallegly .......................................................................................................

Mr. Goodlatte .................................................................................................... X 

Mr. Lungren .......................................................................................................

Mr. Chabot ........................................................................................................ X 

Mr. Issa .............................................................................................................

Mr. Pence ..........................................................................................................


jbell on DSK4TPTVN1PROD with REPORTS
15 

ROLLCALL NO. 12—Continued 

Ayes Nays Present 

Mr. Forbes ......................................................................................................... X 

Mr. King ............................................................................................................ X 

Mr. Franks ......................................................................................................... X 

Mr. Gohmert ......................................................................................................

Mr. Jordan .........................................................................................................

Mr. Poe ..............................................................................................................

Mr. Chaffetz ...................................................................................................... X 

Mr. Griffin ......................................................................................................... X 

Mr. Marino ......................................................................................................... X 

Mr. Gowdy .........................................................................................................

Mr. Ross ............................................................................................................

Ms. Adams ........................................................................................................ X 

Mr. Quayle ......................................................................................................... X 

Mr. Amodei ........................................................................................................

Mr. Conyers, Jr., Ranking Member ....................................................................

Mr. Berman .......................................................................................................

Mr. Nadler .........................................................................................................

Mr. Scott ........................................................................................................... X 

Mr. Watt ............................................................................................................

Ms. Lofgren .......................................................................................................

Ms. Jackson Lee ................................................................................................ X 

Ms. Waters ........................................................................................................

Mr. Cohen ..........................................................................................................

Mr. Johnson ....................................................................................................... X 

Mr. Pierluisi .......................................................................................................

Mr. Quigley ........................................................................................................

Ms. Chu .............................................................................................................

Mr. Deutch ........................................................................................................

Ms. Sa ́nchez ......................................................................................................

(Vacant) ............................................................................................................

Total ................................................................................................ 3 12 

13. Motion to report H.R. 822 favorably, as amended. Passed 19 

to 11. 

ROLLCALL NO. 13 

Ayes Nays Present 

Mr. Smith, Chairman ........................................................................................ X 

Mr. Sensenbrenner, Jr. ...................................................................................... X 

Mr. Coble ........................................................................................................... X 

Mr. Gallegly .......................................................................................................

Mr. Goodlatte .................................................................................................... X 

Mr. Lungren ....................................................................................................... X 

Mr. Chabot ........................................................................................................ X 

Mr. Issa ............................................................................................................. X 

Mr. Pence ..........................................................................................................

Mr. Forbes ......................................................................................................... X 

Mr. King ............................................................................................................ X 

Mr. Franks ......................................................................................................... X 

Mr. Gohmert ......................................................................................................

Mr. Jordan ......................................................................................................... X 

Mr. Poe .............................................................................................................. X 

Mr. Chaffetz ...................................................................................................... X 

Mr. Griffin ......................................................................................................... X 

Mr. Marino ......................................................................................................... X 

Mr. Gowdy ......................................................................................................... X 

Mr. Ross ............................................................................................................ X 

Ms. Adams ........................................................................................................ X 

Mr. Quayle ......................................................................................................... X 

Mr. Amodei ........................................................................................................ X 

Mr. Conyers, Jr., Ranking Member .................................................................... X 


jbell on DSK4TPTVN1PROD with REPORTS
16 

ROLLCALL NO. 13—Continued 

Ayes Nays Present 

Mr. Berman ....................................................................................................... X 

Mr. Nadler ......................................................................................................... X 

Mr. Scott ........................................................................................................... X 

Mr. Watt ............................................................................................................

Ms. Lofgren .......................................................................................................

Ms. Jackson Lee ................................................................................................

Ms. Waters ........................................................................................................ X 

Mr. Cohen .......................................................................................................... X 

Mr. Johnson ....................................................................................................... X 

Mr. Pierluisi ....................................................................................................... X 

Mr. Quigley ........................................................................................................ X 

Ms. Chu ............................................................................................................. X 

Mr. Deutch ........................................................................................................

Ms. Sa ́nchez ......................................................................................................

(Vacant) ............................................................................................................

Total ................................................................................................ 19 11 

Committee Oversight Findings 

In compliance with clause 3(c)(1) of rule XIII of the Rules of the 

House of Representatives, the Committee advises that the findings 

and recommendations of the Committee, based on oversight activities under clause 2(b)(1) of rule X of the Rules of the House of Representatives, are incorporated in the descriptive portions of this report. 

New Budget Authority and Tax Expenditures 

Clause 3(c)(2) of rule XIII of the Rules of the House of Representatives is inapplicable because this legislation does not provide new 

budgetary authority or increased tax expenditures. 

Congressional Budget Office Cost Estimate 

In compliance with clause 3(c)(3) of rule XIII of the Rules of the 

House of Representatives, the Committee sets forth, with respect to 

the bill, H.R. 822, the following estimate and comparison prepared 

by the Director of the Congressional Budget Office under section 

402 of the Congressional Budget Act of 1974: 

U.S. CONGRESS, CONGRESSIONAL BUDGET OFFICE, Washington, DC, November 4, 2011. 

Hon. LAMAR SMITH, CHAIRMAN, 

Committee on the Judiciary, 

House of Representatives, Washington, DC. 

DEAR MR. CHAIRMAN: The Congressional Budget Office has prepared the enclosed cost estimate for H.R. 822, the ‘‘National Rightto-Carry Reciprocity Act of 2011.’’ 

If you wish further details on this estimate, we will be pleased 

to provide them. The CBO staff contact is Mark Grabowicz, who 

can be reached at 226–2860. 

Sincerely, 

DOUGLAS W. ELMENDORF, DIRECTOR. 


jbell on DSK4TPTVN1PROD with REPORTS
17 

Enclosure 

cc: Honorable John Conyers, Jr. 

Ranking Member 

H.R. 822—National Right-to-Carry Reciprocity Act of 2011. 

As ordered reported by the House Committee on the Judiciary on 

October 25, 2011 

H.R. 822 would permit persons who are authorized to carry concealed firearms in their state of residence to carry concealed handguns in other states, under certain circumstances. The bill also 

would require the Government Accountability Office (GAO) to submit to the Congress a study on the laws and regulations of states 

that currently authorize nonresidents to carry concealed handguns. 

Based on the costs of similar GAO activities, CBO estimates that 

implementing H.R. 822 would have no significant cost to the Federal Government. Enacting the bill would not affect direct spending 

or revenues; therefore, pay-as-you-go procedures do not apply. 

H.R. 822 would impose an intergovernmental mandate as defined 

in the Unfunded Mandates Reform Act (UMRA) by preempting 

some state laws that limit the ability of nonresidents to carry concealed weapons. Laws allowing individuals to carry concealed 

weapons vary from state to state and range from allowing anyone 

to carry such weapons without a permit to prohibiting nonresidents 

from carrying concealed weapons and requiring residents to complete training and meet other conditions before obtaining a permit. 

Some states recognize permits issued by other states and some do 

not. If enacted, the bill would require states that currently do not 

recognize permits to carry concealed weapons issued by other 

states to recognize those permits for nonresidents. The costs for 

states to comply with that mandate would include the cost to 

change protocols and train law enforcement officers. 

The bill also could result in the loss of revenue for some states. 

Currently, some states issue permits to nonresidents and charge 

fees ranging from $20 to $140 for those permits. If this bill is enacted and individuals have a permit to carry concealed weapons 

from their resident state, they would no longer need to purchase 

nonresident permits in other states they visit. There is no data on 

how many individuals this may affect, but the loss to states that 

issue nonresident permits could total a few million dollars annually. 

CBO estimates that the total costs for states to comply with the 

preemption, including the training costs for law enforcement and 

the lost revenue from the nonresident permit fees, would be small 

and would not exceed the threshold established in UMRA ($71 million in 2011, adjusted annually for inflation). 

H.R. 822 contains no private-sector mandates as defined in 

UMRA. 

The CBO staff contacts for this estimate are Mark Grabowicz (for 

Federal costs) and Melissa Merrell (for the intergovernmental impact). The estimate was approved by Theresa Gullo, Deputy Assistant Director for Budget Analysis. 


jbell on DSK4TPTVN1PROD with REPORTS
18 

Performance Goals and Objectives 

The Committee states that pursuant to clause 3(c)(4) of rule XIII 

of the Rules of the House of Representatives, H.R. 822 allows persons with valid state-issued concealed firearm permits or licenses 

to carry a concealed firearm in any other state that also issues concealed firearm permits or licenses, or in any other state that does 

not generally prohibit the carrying of concealed firearms. 

Advisory on Earmarks 

In accordance with clause 9 of rule XXI of the Rules of the House 

of Representatives, H.R. 822 does not contain any congressional 

earmarks, limited tax benefits, or limited tariff benefits as defined 

in clause 9(e), 9(f), or 9(g) of Rule XXI. 

Section-by-Section Analysis 

The following discussion describes the bill as reported by the 

Committee. 

Section 1. Short Title. Section 1 states that H.R. 822 may be 

cited as the ‘‘National Right-to-Carry Reciprocity Act of 2011.’’ 

Section 2. Reciprocity for the Carrying of Certain Concealed Firearms. This section amends Chapter 44 of title 18 of the U.S. Code 

to insert after Section 926C a provision to provide reciprocity for 

the carrying of certain concealed firearms across state lines. This 

legislation would allow any person with a valid state-issued concealed firearm permit or license and a valid government-issued 

identification document to carry a concealed firearm in any other 

state that either issues concealed firearm permits, or that does not 

prohibit the carrying of concealed firearms. Section 2 further provides that the laws of a state or political subdivision regarding the 

possession or carrying of concealed firearms would continue to 

apply within its borders, as well as any Federal laws that apply to 

residents of a state. Section 2 also defines ‘‘identification document’’ 

and provides that the effective date of the bill is 90 says after the 

enactment of the Act. 

Section 3. GAO Audit of the States’ Concealed Carry Permit of Licensing Requirements for Non-Residents. This section directs the 

Comptroller General to audit the laws of each state that issues concealed carry permits or licenses to non-residents, the number of 

permits issued to non-residents by these states, and the effectiveness of these laws in protecting the public safety. This audit is due 

not more than 1-year after enactment of H.R. 822. 

Changes in Existing Law Made by the Bill, as Reported 

In compliance with clause 3(e) of rule XIII of the Rules of the 

House of Representatives, changes in existing law made by the bill, 

as reported, are shown as follows (new matter is printed in italic 

and existing law in which no change is proposed is shown in 

roman): 


jbell on DSK4TPTVN1PROD with REPORTS
19 

TITLE 18, UNITED STATES CODE 

PART I—CRIMES 

* * * * * * * 

CHAPTER 44—FIREARMS 

Sec. 

921. Definitions. 

* * * * * * * 

926D. Reciprocity for the carrying of certain concealed firearms. 

* * * * * * * 

§ 926D. Reciprocity for the carrying of certain concealed 

firearms 

(a) Notwithstanding any provision of the law of any State or political subdivision thereof (except as provided in subsection (b)), a 

person who is not prohibited by Federal law from possessing, transporting, shipping, or receiving a firearm, and who is carrying a 

valid identification document containing a photograph of the person, and a valid license or permit which is issued pursuant to the 

law of a State and which permits the person to carry a concealed 

firearm, may possess or carry a concealed handgun (other than a 

machinegun or destructive device) that has been shipped or transported in interstate or foreign commerce, in any State, other than 

the State of residence of the person, that— 

(1) has a statute that allows residents of the State to obtain 

licenses or permits to carry concealed firearms; or 

(2) does not prohibit the carrying of concealed firearms by 

residents of the State for lawful purposes. 

(b) The possession or carrying of a concealed handgun in a State 

under this section shall be subject to the same conditions and limitations, except as to eligibility to possess or carry, imposed by or 

under Federal or State law or the law of a political subdivision of 

a State, that apply to the possession or carrying of a concealed 

handgun by residents of the State or political subdivision who are 

licensed by the State or political subdivision to do so, or not prohibited by the State from doing so. 

(c) In subsection (a), the term ‘‘identification document’’ means a 

document made or issued by or under the authority of the United 

States Government, a State, or a political subdivision of a State 

which, when completed with information concerning a particular individual, is of a type intended or commonly accepted for the purpose 

of identification of individuals. 

* * * * * * * 


jbell on DSK4TPTVN1PROD with REPORTS
20 

1Letter from Thomas M. Menino, Mayor of Boston and Michael R. Bloomberg, Mayor of New 

York City (Co-Chairs of the Mayors Against Illegal Guns) to The Honorable John Boehner and 

The Honorable Nancy Pelosi (March 11, 2011). 2Police groups opposing the bill included the International Association of Chiefs of Police; 

Major Cities Chiefs Association; the Police Foundation, National Latino Peace Officers Association; and National Organization of Black Law Enforcement Executives. Among the state and 

local police organizations and individuals opposing the bill are the California Police Chiefs Association; the Colorado Association of Chiefs of Police; Colorado Springs Police Chief Richard 

Myers; Boston Police Commissioner Edward Davis; Las Vegas Metropolitan Police Department 

Sheriff Douglas Gillespie; the Virginia Association of Chiefs of Police; Minneapolis Chief of Police Timothy Dolan; Duluth Police Chief Gordon Ramsay; Burlington North Carolina Chief of 

Police Michael Williams; New York City Police Commissioner Raymond W. Kelly; and Portland 

Maine Chief of Police James E. Craig. Domestic violence abuse victims advocates oppose this 

bill, including the National Network to End Domestic Violence (a coalition of 56 domestic violence victim advocacy groups) and the Minnesota Domestic Abuse Project. Prosecutors opposing 

the bill, include the Association of Prosecuting Attorneys; the American Bar Association; Minneapolis Office of the City Attorney Susan Segal; Bronx County (NY) District Attorney Robert 

Johnson; Kings County (NY) District Attorney Charles Hynes; Queens County (NY) District Attorney Richard A. Brown; Richmond County (NY) District Attorney Daniel Donovan, Jr.; New 

York’s Special Narcotics Prosecutor Bridget G. Brennan; New York County (NY) District Attorney Robert Morris Morgenthau; New Jersey Attorney General Anne Milgram; Delaware Acting 

Attorney General Richard Gebelein; Iowa Attorney General Tom Miller; Illinois Attorney General Lisa Madigan; Colorado Association of Chiefs of Police; Broomfield (CO) Police Chief Thomas Deland; Colorado Springs (CO) Police Chief Richard Myers; and Wheat Ridge (CO) Police 

Chief Daniel G. Brennan. Faith-based organizations opposing the bill include Faiths United, 

a coalition of more than 30 religious organizations. Our Lives, Our Laws: People Who Care, 

http://www.ourlivesourlaws.org/people-who-care. 

Dissenting Views 

INTRODUCTION

H.R. 822, the ‘‘National Right-to-Carry Reciprocity Act of 2011,’’ 

is a dangerous bill that would override the laws of almost every 

state by obliging each to accept concealed handgun carry permits 

from every other state, even if the permit holder would not be allowed to carry or even possess a handgun in the state where he or 

she is traveling. The law tramples federalism and endangers public 

safety. 

The harmful impact of this legislation is without doubt. For example, some states require an individual to show that he or she 

knows how to use a firearm or meet minimum training standards 

before obtaining a concealed carry license. Under H.R. 822, however, these states would be forced to allow out-of-state visitors to 

carry concealed weapons even if they do not meet that state’s concealed licensing standards concerning basic gun safety or training 

requirements. During consideration of the bill, numerous amendments were offered by the Minority to address these serious flaws, 

but none were adopted. Members of the Majority blocked amendments to preserve the application of state laws concerning eligibility to carry concealed weapons within their borders, as well as 

other amendments that would have allowed states to prevent concealed carrying of handguns by those with out of state permits with 

convictions for offenses such as misdemeanor assault on police officers and misdemeanor sex offenses against children. 

Recognizing the danger that it would pose to our citizens and to 

law enforcement officers across this country, this bill is opposed by 

more than 550 mayors (represented by Mayors Against Illegal 

Guns),1 major police organizations, domestic violence abuse victim 

advocates, prosecutors, and faith-based organizations.2

For these reasons, and those stated below, we urge our colleagues to oppose this seriously flawed legislation and respectfully 

dissent. 


jbell on DSK4TPTVN1PROD with REPORTS
21 

3 H.R. 822, as amended by the Franks Substitute Amendment, 112th Cong. § 2(b) (emphasis 

supplied). 4The National Right-to-Carry Reciprocity Act of 2011: Hearing on H.R. 822 Before the 

Subcomm. on Crime, Terrorism, and Homeland Security of the H. Comm. on the Judiciary, 

112th Cong. (2011) (statement of Charles H. Ramsey, Police Commissioner, Philadelphia Police 

Department). 5 554 U.S. 570 (2008). 

6 Id. at 627 n.26. 7 Id. at 626. 

DESCRIPTION AND BACKGROUND

H.R. 822 disregards state laws by forcing states to allow the carrying of loaded, concealed weapons by any individual permitted to 

carry concealed weapons in another state. Section 2 of H.R. 822, as 

amended by the Committee, sets forth the bill’s operative provisions and makes clear that the intent of this legislation is to override the will of the states with regard to who may carry concealed 

handguns within their borders. It provides that an individual who 

is not prohibited by federal law from possessing firearms and who 

is carrying a valid identification document containing a photograph 

of such individual and a valid concealed carry permit issued by a 

state, may carry a concealed handgun in another state if the other 

state has a statute that allows the issuance of concealed carry permits or does not prohibit the carrying of concealed firearms. Section 2(b) provides that an individual carrying a concealed handgun 

in a state must be permitted to carry the gun subject to ‘‘the same 

conditions and limitations, except as to eligibility to possess or 

carry,’’ imposed by federal, state or local law that apply to the possession or carrying of a concealed handgun by residents of that 

state.3

In effect, the bill would reduce all states to the lowest common 

denominator of concealed carry laws, and would subject citizens to 

unnecessary public safety risks, contrary to the judgments made by 

the individual states. As Philadelphia Police Commissioner Charles 

Ramsey stated, ‘‘We have a uniquely diverse nation. What works 

where I currently serve as Commissioner in Philadelphia, and the 

Commonwealth of Pennsylvania, does not work for our neighbor 

across the river in New Jersey. Our laws for obtaining a permit are 

vastly different, based on well-debated decisions made at the state 

level.’’ 4

The Courts have found that States are within their lawful constitutional power to set minimum public safety standards for carrying concealed guns. The Supreme Court has stated that even prohibitions on concealed carrying are permissible. In District of Columbia v. Heller,5 a case in which the Supreme Court held that the 

District’s handgun ban was unconstitutional, Justice Scalia, writing for the majority, specified that the Court’s holding did not ‘‘cast 

doubt’’ on other gun laws and noted that ‘‘[w]e identify these presumptively lawful regulatory measures only as examples; our list 

does not purport to be exhaustive.’’ 6 In discussing long-understood 

limitations on the right to keep and bear arms, Justice Scalia noted 

that ‘‘the majority of the 19th-century courts to consider the question held that prohibitions on carrying concealed weapons were 

lawful under the Second Amendment or state analogues.’’ 7 The 

Court thus reaffirmed its ruling in Robertson v. Baldwin that ‘‘the 


jbell on DSK4TPTVN1PROD with REPORTS
22 

8 165 U.S. 275, 281–82 (1897). 

9F. Supp. 2d (S.D.N.Y 2011). 

10 Heller, 554 U.S. at 635. 11 638 F.3d 458 (4th Cir. 2011). 12 Id. at 475. 13 Id. at 476. 14See, e.g, People v. Aguillar, 944 N.E. 2d 816 (Ill. App. Ct. 2011) (stating ‘‘the decisions in 

Heller and McDonald were limited to interpreting the second amendment’s protection of the 

right to possess handguns in the home, not the right to possess handguns outside the home’’); 

Gonzalez v. Village of W. Milwaukee, No. 09cv0384, 2010 WL 1904977 (E.D. Wis. May 11, 2010) 

(stating that the ‘‘Supreme Court has never held that the Second Amendment protects the carrying of guns outside the home’’); United States v. Hart, 725 F. Supp. 2d. 56 (D. Mass. 2010) 

(‘‘Heller does not hold, nor even suggest, that concealed weapons laws are unconstitutional.’’); 

In re Factor, 2010 WL 1753307 (N.J. Super. Ct. App. Div. Apr. 21, 2010) (stating that the 

‘‘United States Supreme Court has not held or even implied that the Second Amendment prohibits laws that restrict carrying of concealed weapons’’); Dorr v. Weber, 2010 WL 1976743 (N.D. 

Iowa, May 18, 2010) (stating that a ‘‘right to carry a concealed weapon under the Second 

Amendment has not been recognized to date’’); Teng v. Town of Kensington, No. 09cv8jl, 2010 

WL 596526 (D.N.H. Feb. 17, 2010) (‘‘Given that Heller refers to outright ‘prohibition on carrying 

concealed weapons’ as ‘presumptively lawful,’ far lesser restrictions of the sort imposed here 

clearly do not violate the Second Amendment.’’); United States v. Tooley, 717 F. Supp. 2d 580 

(S.D.W.Va. 2010) (‘‘Additionally, possession of a firearm outside of the home or for purposes 

other than self-defense in the home are not within the ‘core’ of the Second Amendment right 

as defined by Heller.’’); Riddick v. United States, 995 A.2d 212 (D.C. 2010) (stating that Second 

Amendment does not ‘‘compel the District to license a resident to carry and possess a handgun 

outside the confines of his home, however broadly defined’’); State v. Knight, 218 P.3d 1177 

(Kan. Ct. App. 2009) (‘‘It is clear that the [Heller] Court was drawing a narrow line regarding 

the violations related solely to use of a handgun in the home for self-defense purposes. [The defendant’s] argument, that Heller conferred on an individual the right to carry a concealed firearm, is unpersuasive.’’). 

right of the people to keep and bear arms (article 2) is not infringed 

by laws prohibiting the carrying of concealed weapons.’’ 8

Since Heller, courts throughout the United States have rejected 

the argument that there is a right to carry concealed guns in public. In Kachalsky v. Cacace,9 the court upheld New York’s restrictions on concealed carry, and stated: 

This emphasis on the Second Amendment’s protection of 

the right to keep and bear arms for the purpose of ‘selfdefense in the home’ permeates the Court’s decision and 

forms the basis for its holding—which, despite the Court’s 

broad analysis of the Second Amendment’s text and historical underpinnings, is actually quite narrow. 

The language of Heller makes clear that the Court recognized ‘not a right to keep and carry any weapon whatsoever in any manner whatsoever and for whatever purpose’ 

but rather a much narrower right—namely the ‘‘right of 

law-abiding, responsible citizens to use arms in defense of 

hearth and home.’’ 10

In U.S. v. Masciandaro,11 the Fourth Circuit rejected the claim 

that there is a constitutional right to possess a loaded handgun in 

a car in a national park. The court explained, ‘‘This is serious business. We do not wish to be even minutely responsible for some unspeakably tragic act of mayhem because in the peace of our judicial 

chambers we miscalculated as to Second Amendment rights.’’ 12

The Fourth Circuit cautioned further that the danger posed by 

guns ‘‘would rise exponentially as one moved the right from the 

home to the public square. If ever there was an occasion for restraint, this would seem to be it. There is much to be said for a 

course of simple caution.’’ 13

Many other courts have similarly reached this conclusion.14 In 

sum, the courts are in accord that there is no constitutional right 

to carry loaded guns outside the home, and certainly not to carry 


jbell on DSK4TPTVN1PROD with REPORTS
23 

15 18 U.S.C § 922(g)(1). 16The following states require training: Alaska, Arkansas, Arizona, California, Colorado, Connecticut, Deleware, Florida, Hawaii, Iowa, Kansas, Kentucky, Louisiana, Massachusetts, Maine, 

Michigan, Minnesota, Missouri, Montana, North Carolina, Nebraska, New Jersey, New Mexico, 

Nevada, Ohio, Oklahoma, Oregon, Rhode Island, South Carolina, Tennessee, Texas, Utah, Wisconsin, West Virginia, and Wyoming. In addition, Virginia and Maryland explicitly state that 

internet-based training can satisfy their requirement and North Dakota requires certain permittees only to pass an open book exam to satisfy its requirement. 17The following states require live fire training: Arkansas, Delaware, Hawaii, Kansas, Kentucky, Michigan, Minnesota, Missouri, North Carolina, New Jersey, New Mexico, Ohio, Oklahoma, Rhode Island, South Carolina, Tennessee, Texas, and West Virginia. 18Garen Wintemute et al., Prior misdemeanor convictions as a risk factor for later violent and 

firearm-related criminal activity among authorized purchasers of handguns, J. Am. Medical 

Ass’n 1998, 280:2083–2087. 

concealed guns in public spaces. State laws governing such conduct, 

directly bearing on questions of public safety, should therefore not 

be nullified by Congress. 

CONCERNS WITH H.R. 822

I. IMPOSING NATIONAL CONCEALED CARRY RECIPROCITY INFRINGES

STATES’ RIGHTS TO PROTECT THEIR CITIZENS FROM GUN VIOLENCE

A. H.R. 822 Would Override State Laws Regarding Who Is Eligible 

To Carry A Concealed, Loaded Gun 

H.R.822 eviscerates the authority of states to set their own eligibility standards for who may carry a concealed, loaded gun in public. State officials, law enforcement, and legislators are in the best 

position to decide crime-fighting policies for their respective jurisdictions. For example, rural areas may not fit the needs of big cities and vice-versa. 

States often set standards for carrying handguns on city streets 

that include criteria that exceed the requirement that an applicant 

pass a federal background check. For instance, many states, including those with strong gun rights traditions, have enacted laws that 

prohibit concealed handgun carrying by certain categories of individuals. These include teenagers, alcohol abusers, and individuals 

who pose a danger to others, or those who have not completed basic 

safety training. Some states also include individuals who have been 

convicted of certain violent misdemeanors, providing an even greater degree of protection than the prohibition in Federal law against 

gun possession by felons.15 The following identifies the various 

state requirements on applicants for concealed carry permits: 

• Thirty-five states require gun safety training,16 18 of which 

require live fire drills or other proof of competency with a 

firearm.17

• Thirty-eight states prohibit individuals convicted of certain 

misdemeanor crimes from carrying concealed firearms, including Pennsylvania, which bars carrying by those who 

have been convicted of stalking, impersonating a law enforcement officer and other dangerous misdemeanor offenses. Research supports these restrictions. For example, one study 

found handgun buyers who have been convicted of just one 

misdemeanor are almost five times as likely to be convicted 

of a serious violent crime as handgun buyers with no criminal record.18


jbell on DSK4TPTVN1PROD with REPORTS
24 

19The following states prohibit carrying by people under the age of 21: Alaska, Arkansas, Arizona, Colorado, Connecticut, Florida, Georgia, Hawaii, Idaho, Kansas, Kentucky, Louisiana, 

Massachusetts, Michigan, Minnesota, Missouri, Mississippi, North Carolina, Nebraska, New Jersey, New Mexico, Nevada, New York, Ohio, Oklahoma, Oregon, Pennsylvania, Rhode Island, 

South Carolina, Tennessee, Texas, Utah, Virginia, Washington, West Virginia, and Wyoming. 20The following states prohibit carrying by alcohol abusers: Alabama, Arkansas, Colorado, 

Florida, Georgia, Hawaii, Iowa, Indiana, Kansas, Kentucky, Louisiana, Massachusetts, Maryland, Mississippi, North Carolina, New Jersey, New Mexico, Nevada, Ohio, Oklahoma, Pennsylvania, Rhode Island, South Carolina, South Dakota, Tennessee, Texas, Virginia, West Virginia, 

and Wyoming. 21Ten states grant broad discretion to approve or deny concealed carry permits (Alabama, 

California, Connecticut, Delaware, Hawaii, Massachusetts, Maryland, New Jersey, New York, 

and Rhode Island); 14 states granted limited discretion to do so (Arkansas, Colorado, Iowa, Indiana, Maine, Michigan, Minnesota, Missouri, Montana, New Hampshire, Oregon, Pennsylvania, 

Utah, and Wyoming). 22These states are the following: Iowa, Idaho, Indiana, Kentucky, Michigan, Missouri, Oklahoma, South Dakota, Tennessee, and Utah. 23These states are California, Connecticut, Hawaii, Massachusetts, Maryland, New Jersey, 

New York, Oregon, Rhode Island. Note that Massachusetts allows non-residents with valid outof-state carry licenses to carry concealed firearms in Massachusetts in limited circumstanceshunting, attending an organized firearms collectors’ exhibition, or the person is participating in 

a firearms competition. See Mass. Gen. Laws ch. 140 § 131G. 24The breakdown of these states is as follows: Alabama (23 states); Arkansas (37 states); Colorado (29 states); Delaware (18 states); Florida (35 states); Georgia (23 states); Kansas (23 

states); Louisiana (36 states); Maine (6 states); Minnesota (15 states); Mississippi (25 states); 

Montana (40 states); North Carolina (34 states); North Dakota (35 states); Nebraska (35 states); 

New Hampshire (21 states); New Mexico (19 states); Nevada (15 states); Ohio (21 states); Pennsylvania (25 states); South Carolina (17 states); Texas (40 states); Virginia (27 states); Washington (11 states); Wisconsin; West Virginia (21 states); and Wyoming (33 states). 25Press Release, State of New Mexico, Department of Public Safety, New Mexico No Longer 

Recognizes Utah Concealed Carry License (Apr. 23, 2010; Are other states’ concealed-guns rules 

up to par?, The Santa Fe New Mexican (AP), May 18, 2010; Outdoors-DEC decides against antler restrictions in Region 4,’’ Press & Sun Bulletin (Binghamton, NY), July 9, 2009. 26Outdoors-DEC Decides Against Antler Restrictions in Region 4, Press & Sun Bulletin (Binghamton, NY), July 9, 2009. 

• Thirty-six states prohibit youths age 20 and under from obtaining a concealed carry permit, including Colorado and 

Missouri.19

• Twenty-nine states prohibit alcohol abusers from obtaining a 

concealed carry permit, including South Carolina, which prevents ‘‘habitual drunkard[s]’’ from carrying guns.20

• Twenty-four states grant law enforcement agencies discretion to approve or deny carry permits to an applicant who 

appears to be dangerous, including Alabama, which allows 

sheriffs to grant or deny licenses based on whether ‘‘it appears that the applicant . . . has any . . . proper reason for 

carrying a pistol, and [whether] he or she is a suitable person to be so licensed.’’ 21

Some states have voluntarily entered into reciprocity agreements 

with other states. These agreements vary from state to state. Ten 

states honor concealed carry permits issued in any other state and 

three states allow carrying by nonresidents without a permit.22

Nine states, however, choose not to recognize any out-of-state permits.23 And, 27 states recognize permits only from certain other 

states, typically states with equivalent or higher standards.24

Some states have recently tightened the requirements for their 

residents to obtain out-of-state carry permits and cancelled reciprocity agreements with states that no longer meet minimum 

standards. For example, New Mexico and Nevada both stopped recognizing concealed carry permits issued by Utah because it does 

not include live-fire instruction as part of its training requirement.25 Nevada also stopped recognizing carry permits issued by 

Florida, which only requires permits to be renewed every 7 years.26

H.R. 822, however, would override these State determinations and 


jbell on DSK4TPTVN1PROD with REPORTS
25 

27Garen J. Wintemute et al., Prior Misdemeanor Convictions as a Risk Factor for Later Violent and Firearm-Related Criminal Activity Among Authorized Purchasers of Handguns, 280 J. 

Am. Med. Ass’n 2083, Dec. 23/30, 1998. 28 N.Y. Penal Law §§ 265.02, 400.00(1). 29 N.Y. Penal Law § 130.20. 30 N.Y. Penal Law § 130.52. 31 N.Y. Penal Law § 130.55. 32 N.Y. Penal Law § 130.60. 33These states are: California, Connecticut, Delaware, Hawaii, Indiana, Massachusetts, Maryland, Maine, Michigan, New Hampshire, New Jersey, New York, Oklahoma, and Rhode Island. 

would force States to recognize all concealed carry permits regardless of the issuing State’s standards. 

H.R. 822’s infringement on states’ rights is underscored by the 

substitute amendment, offered by Congressman Trent Franks (R– 

AZ), which the Committee adopted. The amendment exempts the 

possession and carrying of concealed handguns under the bill from 

state conditions and limitations ‘‘as to eligibility to possess and 

carry.’’ Unfortunately, by a vote of 12 to 18, the Committee failed 

to adopt the amendment offered by Ranking Minority Member 

John Conyers to eliminate this specific provision from the substitute amendment. As a result, this legislation would override all 

of these carefully deliberated state and local policies, reducing concealed carry permitting to a new federal lowest common denominator. 

Many states have determined that persons convicted of certain 

misdemeanors should not be allowed to carry concealed handguns 

within their borders. This is their considered judgment based on 

debate within their legislatures. As one study shows, misdemeanants who buy handguns are more likely to commit future 

crimes than other handgun buyers: 

• Buyers who had at least one misdemeanor conviction were 

7.5 times as likely to be charged with a new offense as buyers who had no record. 

• The more past misdemeanors a gun buyer had, the more 

likely he or she would be charged with a further offense after 

the purchase. 

• Men who had one violent misdemeanor conviction were 9.3 

times as likely to be charged with a new offense as men who 

had no record. 

• Men with two or more violent misdemeanor convictions who 

bought a handgun were 15 times as likely to be charged with 

a serious violent crime as men with no record who bought 

handguns.27

Misdemeanor sex offense against a child: Federal law prohibits 

possession of guns by felons, including people convicted of felony 

sex crimes, but not by individuals convicted of misdemeanor sex 

crimes. Some states have nonetheless decided to deny permits to 

carry concealed, loaded guns to individuals convicted of dangerous 

misdemeanors, including sex crimes against children. For example, 

New York prohibits people convicted of certain sex crime from carrying or possessing a gun,28 including the misdemeanor sex crimes 

of sexual misconduct,29 forcible touching,30 sexual abuse in the 

third degree,31 and sexual abuse in the second degree.32 In addition, 14 states require concealed carry permit applicants to demonstrate good moral character,33 including—for example—a record 


jbell on DSK4TPTVN1PROD with REPORTS
26 

34These states are: Alabama, California, Connecticut, Delaware, Hawaii, Massachusetts, 

Maryland, New Jersey, New York, and Rhode Island. 35These states are: Iowa, Louisiana, Wyoming, Pennsylvania, Tennessee, Oklahoma, North 

Dakota, New York, Connecticut, Michigan, Ohio, and Minnesota. 36These states are: California, Connecticut, Delaware, Hawaii, Indiana, Massachusetts, Maryland, Maine, Michigan, New Hampshire, New Jersey, New York, Oklahoma, and Rhode Island. 37These states are: Alabama, California, Connecticut, Delaware, Hawaii, Massachusetts, 

Maryland, New Jersey, New York, and Rhode Island. 38 Bureau of Justice Statistics, U.S. Department of Justice, Homicide Trends in the U.S.: Intimate Homicide (July 2007), available at http://bjs.ojp.usdoj.gov/content/homicide/intimates.cfm. 39Linda E. Saltzman, et al., Weapon Involvement and Injury Outcomes in Family and Intimate 

Assaults, 267 J. Am. Med. Ass’n, 3043–3047 (1992). Abstract available at: http://jama.amaassn.org/content/267/22/3043.abstract. 

free of criminal convictions and 10 states grant law enforcement 

broad discretion to deny permits to carry concealed, loaded guns 

based on an applicant’s record or other factors.34

Congressman Jerrold Nadler (D–NY) offered an amendment that 

would have prohibited any person convicted of a misdemeanor sex 

offense against a child, subject to due process protections, from carrying a concealed handgun under the bill. The amendment, however, failed by a vote of 11 to 17. 

Misdemeanor stalking: There are at least 12 different states’ laws 

preventing individuals convicted of stalking from carrying concealed, loaded guns.35 In addition, 14 states require concealed carry 

permit applicants to demonstrate good moral character, such as a 

record free of criminal convictions 36 and 10 states grant law enforcement broad discretion to deny permits to carry concealed, loaded guns based on an applicant’s record or other factors.37 The bill 

will override all these laws and allow stalkers and people convicted 

of unlawful surveillance to carry concealed, loaded guns nationwide. Congresswoman Sheila Jackson Lee (D–TX) offered an 

amendment that would have prohibited any person convicted of 

misdemeanor stalking or unlawful surveillance from carrying a 

concealed handgun under the bill. The amendment, however, failed 

by a vote of 10 to 15. 

Domestic violence protection orders: The risk to public safety 

when domestic abusers carry concealed guns is real and documented. Statistics show that in homicides of intimate partners 

where the weapon could be identified, female partners are more 

likely to be murdered with a firearm than all other means combined. Between 1990 and 2005, firearms were used to kill more 

than two-thirds of spouse and ex-spouse victims.38 Further yet, the 

presence of guns makes domestic violence much more likely to result in death. According to one study, domestic violence assaults involving a firearm are 23 times more likely to result in death than 

those involving other weapons or bodily force.39

Federal law prohibits possession of guns by felons, domestic violence misdemeanants and individuals currently subject to a domestic violence protective order, but federal law does not bar gun possession by individuals who were subject to a protective order in the 

past. To close this gap out of concerns for public safety and the welfare of families, some states do not grant permits to carry loaded 

concealed guns to individuals who have a history of domestic abuse 

or were subject to a prior order of protection. For example, New 

York City will deny permits to individuals who have one or more 


jbell on DSK4TPTVN1PROD with REPORTS
27 

40 R.C.N.Y. tit. 38 § 5–10. 41These states are: California, Connecticut, Delaware, Hawaii, Indiana, Massachusetts, Maryland, Maine, Michigan, New Hampshire, New Jersey, New York, Oklahoma, and Rhode Island. 42Letter from the National Network to End Domestic Violence to U.S. House Speaker John 

Boehner and U.S. House Democratic Leader Nancy Pelosi (Oct. 12, 2011) (on file with the H. 

Comm on the Judiciary, Dem. Staff). 43Mass. Gen. Laws ch. 140 § 131(d)(i); Mass. Gen. Laws ch. 94C § 32C. 44Mass. Gen. Laws ch. 140 § 131(d)(i); Mass. Gen. Laws ch. 94C § 32D. 

incidents of domestic violence on their record,40 and 14 states require applicants to show good moral character.41

The bill will override these more protective laws and allow domestic abusers to carry nationwide. In addition, because the validity of permits will be difficult to verify by law enforcement (as discussed below), the bill will make it easier for domestic abusers to 

follow family members across state lines with concealed weapons. 

For these reasons, the National Network to End Domestic Violence, a coalition of 56 domestic violence victim advocacy groups 

and more than 2,000 crisis shelters, opposes national concealed 

carry reciprocity,42 and Congressman Hank Johnson (D–GA) offered an amendment that would have prohibited any person subject 

to a domestic violence protection order within the past 10 years 

from carrying a concealed handgun under the bill. The amendment, 

however, failed by a vote of 12 to 14. 

Misdemeanor assaulting or impersonating a police officer: The 

bill would override several states’ laws preventing individuals convicted of impersonating or assaulting a police officer from carrying 

concealed, loaded guns. For example, four states—Iowa, Florida, 

Louisiana, and North Carolina—prohibit individuals convicted of 

assaulting a police officer from carrying a concealed weapon. In addition, Michigan and Pennsylvania deny permits to people convicted of impersonating a police officer. The risk to public safety 

when individuals convicted of assault or attacking a police officer 

carry concealed, loaded guns is very serious. 

Even worse, the bill establishes minimum standards for an average citizen to carry concealed, loaded guns that are lower than current standards for carry by retired law enforcement officers. In 

2004, Congress passed the ‘‘Law Enforcement Officers Safety Act’’ 

(LEOSA), which permits certain former law enforcement officers to 

carry concealed, loaded guns in their own or other states if they 

complete annual gun safety training, had 10 years of service and 

retired in good standing. The bill imposes none of these minimum 

standards for carry by ordinary citizens. 

Congressman Mike Quigley (D–IL) offered an amendment that 

would have prohibited any person convicted of misdemeanor assaulting or impersonating a law enforcement officer from carrying 

a concealed handgun under the bill. The amendment, however, 

failed by a vote of 11 to 16. 

Misdemeanor selling drugs to a minor: The nexus between drug 

crimes and gun crimes is well documented, and states should have 

the right to prevent drug criminals from carrying guns. Massachusetts, for example, denies concealed carry permits to individuals 

convicted of certain misdemeanor drug crimes, such as selling up 

to 50 pounds of marijuana 43 or repeatedly selling controlled substances that contain specified amounts of codeine.44 Congresswoman Judy Chu (D–CA) offered an amendment that would have 

prohibited any person convicted of a misdemeanor of selling a conVerDate Mar 15 2010 02:58 Nov 11, 2011 Jkt 019006 PO 00000 Frm 00027 Fmt 6659 Sfmt 6720 E:\HR\OC\HR277.XXX HR277

jbell on DSK4TPTVN1PROD with REPORTS
28 

45These states are: Alaska, Arkansas, Arizona, Colorado, Connecticut, Florida, Georgia, Hawaii, Idaho, Kansas, Kentucky, Louisiana, Massachusetts, Michigan, Minnesota, Missouri, Mississippi, North Carolina, Nebraska, New Jersey, New Mexico, Nevada, New York, Ohio, Oklahoma, Oregon, Pennsylvania, Rhode Island, South Carolina, Tennessee, Texas, Utah, Virginia, 

Washington, West Virginia, and Wyoming. 46Fla. Now tracks its Gun Permits Issued to Pa. Residents, Philadelphia Daily News, Feb. 9, 

2010. 47Man Charged in Slaying Had Fla. Gun Permit, Philadelphia Daily News, Sept. 16, 2010. 48 Can’t Get a Gun here? No Problem: Florida Will Issue Permit, and Local Police Must Honor 

It. Phila. Authorities Are Irrate, Philadelphia Daily News, Feb. 5, 2010. 

trolled substance to a minor from carrying a concealed handgun 

under the bill. The amendment, however, failed by a vote of 11 to 

17. 

Under the age of 21: At least 36 states prohibit individuals under 

the age of 21 from obtaining a concealed carry permit.45 In addition, Wisconsin has enacted a carry permit scheme, effective November 1, 2011, that prohibits individuals under the age of 21 from 

carrying concealed guns. Congressman Steve Cohen (D–TN) offered 

an amendment that would have prohibited any person under the 

age of 21 from carrying a concealed handgun under the bill. The 

amendment, however, failed by a vote of 4 to 12. As a result, the 

bill, as reported, would override 37 different states’ laws and permit teenagers to carry loaded guns nationwide. 

B. H.R. 822 Would Allow Individuals Who Are Ineligible For A 

Carry Permit In Their Home State To Carry Concealed, Loaded 

Guns In Every Other State 

Incredibly, this bill would even allow persons ineligible for a 

carry permit in their own state to shop around for lower standards 

in those many other states that offer permits to out-of-state residents. As a result, a criminal could circumvent laws that would 

otherwise render him or her ineligible to carry a concealed handgun. While the bill would not let people carry in their own state 

of residence using an out-of-state permit, it would allow them to 

abuse reciprocity to carry concealed handguns in almost every 

other state. 

C. H.R. 822 Will Allow Dangerous People To Exploit The Weakest 

State Concealed Carry Standards 

Criminals are already exploiting agreements with states with 

weaker standards, with deadly consequences. For example, a recent 

investigation by the Philadelphia Daily News revealed that as of 

February 2010, 2,651 Pennsylvania residents had obtained Florida 

permits, including many individuals who would have been or were 

actually denied a permit in Pennsylvania.46 In one case, a Pennsylvania man obtained a Florida carry license even though his Pennsylvania license had been revoked and went on to use the gun to 

murder a teenager.47 The following Philadelphia officials are advocating for the state to cancel its agreement with Florida: 

• Seth Williams, Philadelphia District Attorney: ‘‘We should 

not allow Florida to pierce the veil of sovereignty of Pennsylvania.’’ 48

• Lt. Lisa King, Commander of the Gun Permitting Unit, 

Philadelphia Police Department: ‘‘They could be disapproved 

here and they could apply in Florida and we are not notified. 


jbell on DSK4TPTVN1PROD with REPORTS
29 

49 Id. 50 Id. 51 Utah Draws Thousands for No-Shooting Required Gun Permit, Reuters, Feb. 26, 2011. 52License to Kill IV: More Guns, More Crime, Violence Policy Center, June 2002. 53Megan O’Matz & John Maines, Investigation Reveals Criminal Pasts of Those Toting Guns, 

South Florida Sun-Sentinel, Jan. 28, 2007. 54Marc Perrusquia, ‘‘Armed and Dangerous: Dozens with Violent Histories Received Handgun 

Carry Permits, Memphis Commercial Appeal, Mar. 12, 2009, available at http:// 

www.commercialappeal.com/news/2009/mar/12/armed-and-dangerous-tennessee-gun-debateprone/?print=1. 55Megan Harris, Felons Slip Through Cracks in System To Carry Firearms, Memphis Commercial Appeal, Aug. 3, 2008, available at http://www.commercialappeal.com/news/2008/aug/03/ 

wrong-fingers-are-on-the-triggers. 56Marc Perrusquia, ‘‘Armed and Dangerous: Dozens with Violent Histories Received Handgun 

Carry Permits, Memphis Commercial Appeal, Mar. 12, 2009, available at http:// 

Continued 

So if we are not giving them a permit to carry, how is Florida allowed to override our decision?’’ 49

• Brian Grady, Deputy of the Special Operations Division of 

the Philadelphia District Attorney’s office, said that prosecutors identified Florida permits issued to Philadelphia residents whose permits have been revoked ‘‘more frequently 

than we would care to.’’ 50

The number of Texans who obtained permits from Utah, where 

the safety training requirements are significantly more lax, more 

than doubled from 2,173 in 2009 to 5,678 in 2010. In fact, in 2010, 

more than 70 percent of Utah’s carry permits were issued to nonresidents.51 According to a 2002 study from the Violence Policy 

Center, Texas concealed handgun permit holders were arrested for 

weapon-related offenses at a rate of 81 percent higher than that of 

Texas’ general population.52

By mandating concealed carry reciprocity, this bill also forces 

states to recognize permits issued by states that have seriously 

flawed permitting schemes, that do no track current permit holders 

or revocations, or allow dangerous people to slip through the cracks 

and carry concealed, loaded weapons in public. For example: 

• Florida: According to a 2007 investigation by the Florida 

Sun-Sentinel, Florida granted permits to more than 1,400 

people who pleaded guilty or no contest to felonies. These individuals were found to be responsible for homicide assaults, 

burglaries, sexual battery, drug possession and child molestation. Florida also gave permits to 216 people with outstanding warrants, 128 people with active domestic violence 

injunctions and 6 registered sex offenders.53

• Tennessee: Tennessee state law gives authorities little flexibility to deny questionable applicants and poor information 

sharing between agencies allows prohibited individuals to obtain CCW permits.54 According to a 2008 investigation by 

the Memphis Commercial Appeal, Tennessee Department of 

Safety did not conduct background checks on CCW permit 

holders seeking renewal from September 2006 and March 

2008 when it lost its subscription to the FBI’s National 

Crime and Information Center database, though Tennessee 

could have accessed felony record from other state agencies.55 Because Tennessee will grant permits to individuals 

with violent arrest records or misdemeanor convictions, the 

paper found that one individual obtained a permit despite 

the fact that he had 25 arrests on record.56 And, at least 70 


jbell on DSK4TPTVN1PROD with REPORTS
30 

www.commercialappeal.com/news/2009/mar/12/armed-and-dangerous-tennessee-gun-debateprone/?print=1. 57 ld. 58Mark Alesia, Should Men Like These Be Allowed To Carry a Gun, Indianapolis Star, Oct. 

11, 2009. 59 Blake Thorne No Penalty, no problem: Counties frequently violate concealed gun law without 

consequence,’’ Flint Journal, June 26, 2011, available at http://www.mlive.com/news/index.ssf/ 

2011/06/nolpenaltylnolproblemlcounties.html. 60 John Agar, Ready, Aim, Misfire: Analysis Finds Mistakes, Misunderstanding in Gun Reports, Grand Rapids Press, June 27, 201, available at http://www.mlive.com/news/index.ssf/2011/ 

06/readylaimlmisfirelanalysislfin.html. 61Debi Brazzale, Audit, Both Parties Cast Doubt on State’s Concealed-carry Database, Colorado News Agency. Dec. 17, 2010, available at http://www.coloradonewsagency.com/2010/12/17/ 

audit-both-parties-cast-doubt-on-states-concealed-carry-database. 62Kirk Mitchell, Colorado Gun-permit Database Incomplete, Riddled with Errors, Denver Post, 

Dec. 20, 2010, available at http://www.denverpost.com/news/cil16900805. 63 ld. 

residents of Shelby County, TN were issued permits despite 

arrest histories that included robbery, assault and domestic 

violence.57

• Indiana: In 2008 and 2009, 456 concealed carry applications 

were approved by the issuing agency, the Indiana State Police, despite the fact the local police departments recommended that these applicants be rejected.58 Under Indiana state law, a person must of ‘‘of good character and reputation’’ to obtain a CCW permit, but the State Police have 

not denied a request based on that requirement since the 

1980s. In addition, Indiana State Police have granted carry 

permits to those convicted of felonies that are treated as misdemeanors under alternative sentencing. The State Police 

are often unaware of an applicant’s arrest record because 

local police reports are rarely forwarded. 

• Michigan: A 2011 series published by the Grand Rapids 

Press uncovered flaws with Michigan’s permit recordkeeping. 

In Michigan, county gun licensing boards are required to 

submit reports to the Michigan State Police on criminal and 

civil charges against permit holders. The State Police should 

then issue a public report each year.59 However, the paper 

found that many convictions involving CCW permit holders 

go unreported by county gun boards and permits are not revoked. From 2006–2010, nearly 1,000 charges were filed 

against concealed carry permit holders though records show 

the dispositions of more than 700 cases were unaccounted 

for. These charges include assault and battery, home invasion, criminal sexual conduct and drug charges.60

• Colorado: The state law that authorized the state’s concealed 

carry permitting database expired on July 1, 2011 and all 

records were subsequently purged.61 Prior to the law expiring, Colorado’s database was incomplete and the records it 

did contain included many inaccuracies, according to a state 

audit. Only 55 percent of CCW handgun permits issued in 

Colorado were represented in the database in part because 

Sheriffs were not required by law to report permitting information to the database.62 Of the records in the database, 63 

percent contained inaccuracies or inconsistencies.63 Even 

though Colorado law enforcement can access information 

about a permit holder by contacting the individual Sheriff 


jbell on DSK4TPTVN1PROD with REPORTS
31 

64 Clinton Gallagher’s Wife Feared for Her Life, Kansas City News, Dec. 16, 2010; Court Documents Paint Picture in Lone Jack Killings,’’ KCTV5.com, Dec. 15, 2010; Father, Son Deaths 

Rules Murder-Suicide in Lone Jack, Fox4KC.com, Dec. 15, 2010. 65Shooter Linked to Aryans, Spokesman Review, May 23, 2007; Authorities Investigate Hamilton’s Gun Purchase, Lewiston Morning Trib., May 24, 2007. 66Was 13-shot Slaying of Burglar a Crime or Self-defense? Jury to Decide, Philadelphia Inquirer, Feb. 2, 2011. 67Murder Charge for Cabbie, The Miami Herald, July 5, 2008. 

who granted the permit, it will presumably be difficult for 

out-of-state law enforcement to determine who to call. 

Lax permitting standards and ineffective administration have serious consequences. Examples of individuals with violent records 

who were nonetheless able to obtain a permit to carry a concealed, 

loaded gun and who later committed crimes include the following. 

• Domestic abuser: In 2009, Clinton Gallagher pled guilty to 

misdemeanor domestic violence, for which he lost his Missouri permit to carry concealed weapons. Gallagher then 

sued the county’s sheriff’s office to have his permit reinstated in 2010 and won the case. The court held that a misdemeanor domestic battery conviction does not prevent someone from possessing firearms in Missouri, even though a 

misdemeanor domestic violence conviction disqualifies a person from possessing a gun under federal law. In December 

2010, Gallagher shot and killed his six-year-old son and then 

killed himself.64

• Domestic battery: Jason Kenneth Hamilton was arrested in 

September 2005 for attempted strangulation of his girlfriend, 

which led to his conviction for misdemeanor domestic battery 

in June 2006. Hamilton was still able to obtain an Idaho permit to carry a handgun and in May 2007, Hamilton shot and 

killed his wife, a police officer, and a church sexton before 

killing himself. The county sheriff confirmed that Hamilton 

had a concealed weapons permit despite the domestic violence conviction that should have barred him from owning 

firearms.65

• Attack on law enforcement: In 2005, Marqus Hill lost his 

permit to carry a handgun in Pennsylvania after being arrested for attempted murder and aggravated assault. The 

charges were eventually expunged, and during a hearing to 

have his permit reinstated in 2008, Hill assaulted a police officer and was found guilty of disorderly conduct. Hill then instead obtained his handgun permit from Florida in 2009, a 

state which has reciprocity with Pennsylvania. A year later, 

Hill killed an 18-year-old he suspected of breaking into his 

car, having shot him thirteen times with a handgun.66

• Aggravated assault with a weapon: In 1997, William Garrido 

pled no contest to charges of aggravated assault with a 

weapon, for which he was sentenced to 2 months in jail and 

a year of probation in Florida. This should have either been 

the basis for revoking an existing permit to conceal and 

carry a handgun or preventing Garrido from obtaining a permit after the conviction. Garrido had a Florida permit to 

carry a handgun in 2008 when he shot and killed a fellow 

cab driver in Miami.67


jbell on DSK4TPTVN1PROD with REPORTS
32 

68Murder Suspect Has Been under Suicide Watch, The Tennessean, Apr. 6, 2010. 69 A Deadly Six Hours, Cleveland Plain Dealer, July 6, 2007; Hough Known for Bursts of 

Anger, Cleveland Plain Dealer, July 7, 2007. 70Murder, Suicide Cited in Deaths, Palm Beach Post, Jan. 21, 2008. 71Debi Brazzale, Audit, Both Parties Cast Doubt on State’s Concealed-carry Database, Colorado News Agency. Dec. 17, 2010, available at http://www.coloradonewsagency.com/2010/12/17/ 

audit-both-parties-cast-doubt-on-states-concealed-carry-database. 72Kirk Mitchell, Colorado Gun-permit Database Incomplete, Riddled with Errors, Denver Post, 

Dec. 20, 2010, available at http://www.denverpost.com/news/cil16900805. 

• Unlawful weapon possession and DUI (Alcohol): In 1993, Michael Joe Hood was found guilty of unlawful weapon possession and drunken driving in Tennessee. Hood was issued a 

permit by the State to carry a handgun in 2008. Hood pled 

guilty to shooting and killing three people in March 2010, including his half sister, her 13-year-old son, and her ex-husband.68

• DUI (Alcohol): Terrance Hough, Jr. obtained a permit to 

carry a handgun from Ohio in 2004 despite a prior alcoholrelated DUI conviction in 1993. Three years later, on July 

4th, Hough became enraged when his neighbors were setting 

off fireworks at a party. Hough shot and killed three people 

and injured two others.69

• Protective order against domestic violence: From 1988 to 

1990, one of Michael Leopold Phillips’s ex-wives obtained an 

injunction for protection against domestic violence. Furthermore, since 1988, Phillips had three charges of domestic battery or assault on a spouse. In 1999, Phillips obtained a permit to carry a handgun from the State of Florida, which was 

renewed in 2006. Phillips shot and killed his current wife before killing himself in 2008.70

II. IMPOSING CONCEALED CARRY RECIPROCITY ON STATES WILL

ENDANGER LAW ENFORCEMENT OFFICERS

H.R. 822 would endanger law enforcement officers as they work 

to keep us safe. Policing our streets and making traffic stops are 

already perilous enough without increasing the number of guns officers encounter. The bill would make it nearly impossible to determine whether someone carrying a gun is doing so illegally. Officers 

would have to distinguish between real and fake carry permits 

issued not only by their own state, but by every state. And in many 

cases, whether a person is entitled to carry a gun would depend on 

their state of residence, which is impossible to verify rapidly. 

In addition, there is no national database of permit holders, and 

not every state has a statewide database that can be accessed by 

out-of-state law enforcement. For example, Virginia has refused to 

grant reciprocity to Alabama, Colorado, Indiana, Georgia, Iowa, 

Idaho and New Hampshire because those states do not have the capacity to verify permits in response to queries by Virginia state police. 

In fact, this past summer Colorado purged its statewide database 

of permit holders after its the legislature allowed its authorizing 

law to lapse.71 Even before the records were deleted, Colorado’s 

database was riddled with inaccuracies. Only 55 percent of concealed carry handgun permits issued in Colorado were represented 

in the database,72 and of the records in the database, 63 percent 


jbell on DSK4TPTVN1PROD with REPORTS
33 

73 Id. 74Letter from Karen Renshaw, Executive Director, Colorado Chiefs of Police Association, to 

Senator Michael Bennet, concerning ‘‘Protect America’s Police Officers, Our Citizens, and States 

Rights by OPPOSING the National Right-to-Carry Reciprocity Act of 2011 (H.R. 822), (August 

19, 2011). 75Letter from David L. Maggard, President, California Chiefs of Police Association, to Senator 

Dianne Feinstein, concerning H.R. 822 (August 1, 2011). 76 National Right-to-Carry Reciprocity Act of 2011: Hearing on H.R. 822 Before the Subcomm. 

on Crime, Terrorism, and Homeland Security, of the H. Comm. on the Judiciary, 112th Cong. 

(2011) (testimony of Charles H. Ramsey, Police Commissioner, Philadelphia Police Department). 77 According to the Mayors Against Illegal Guns, the bill could allow gun traffickers who hold 

out-of-state permits to transport a load of guns through a state with impunity unless they were 

caught in the act of selling the guns. A September 2010 report by Mayors Against Illegal Guns 

called Trace the Guns, illustrated how traffickers already rely on states with weak laws as a 

source for the guns they sell illegally. In fact, 43,254 guns (30 percent of those found at crime 

scenes) crossed state lines before they were recovered. Trace the Guns: The Link Between Gun 

Laws and Interstate Gun Trafficking,’’ Mayors Against Illegal Guns, (Sept. 2010). Traffickers 

often purchase guns in one state and then drive them hundreds of miles to other states to be 

resold to criminals. A trafficker could be aided by a concealed carry permit in such a circumstance. Letter from Thomas M. Menino, Mayor of Boston and Michael R. Bloomberg, Mayor 

of New York City (Co-Chairs of the Mayors Against Illegal Guns) to The Honorable John Boehner and The Honorable Nancy Pelosi (March 11, 2011). 

contained inaccuracies or inconsistencies.73 Even though Pennsylvania and Florida both participate in the public safety network, 

Nlets, which is supposed to provide information on concealed carry 

permits, police in Pennsylvania report that they rarely if ever use 

the system because it isn’t timely enough for officers in serious or 

dangerous situations. Pennsylvania police report persistent problems with Florida’s permit verification process, in one instance having to wait four hours to get confirmation of the validity of a permit 

despite telling the state that verification was urgent. 

Other police officers report that out-of-state concealed carry permits can be impossible to verify during traffic stops and other highrisk situations. According to Karen Renshaw, Executive Director of 

the Colorado Association of Chiefs of Police, ‘‘varying state standards make it very difficult to know if a carry permit from another 

state is valid. If a police officer is unsure about whether a person 

is carrying a gun illegally, especially during a traffic stop, it may 

result in an escalating situation that could turn lethal.’’ 74 According to David L. Maggard, Jr., President of the California Police 

Chiefs Association, ‘‘from a practical standpoint, there is currently 

no national data system that records legitimately issued concealed 

weapons permits making it impossible for the officer on the street 

to determine the validity of an individual’s concealed weapons permit.’’ 75

Inspecting a concealed carry permit is often the only tool an officer has to determine whether an individual is legally carrying a 

concealed firearm. According to Philadelphia Police Commissioner 

Charles Ramsey, this legislation ‘‘has no implementation system’’ 

and would ‘‘leave our officers, whose safety is our first priority, 

without a mechanism to determine if the permit they hold in their 

hands is real and valid.’’ 76,77

III. LOOSENING RESTRICTIONS ON THE CARRYING OF CONCEALED GUNS

IN PUBLIC DOES NOT IMPROVE PUBLIC SAFETY

Concealed carry laws have not made us safer. As a result, forcing 

states with strict permitting standards to recognize permits issued 

by states with weak standards would make us even less safe. Proponents of H.R. 822 have cited research by John Lott that has been 

widely discredited. In fact, as columnist Michelle Malkin has pointVerDate Mar 15 2010 02:58 Nov 11, 2011 Jkt 019006 PO 00000 Frm 00033 Fmt 6659 Sfmt 6720 E:\HR\OC\HR277.XXX HR277

jbell on DSK4TPTVN1PROD with REPORTS
34 

78Michelle Malkin, The Other Lott Controversy, available at http://www.wnd.com/ 

index.php?pageId=17110. 79D. Hemenway et al., Gun Use in the United States: Results From Two National Surveys, 

available at http://www.ncbi.nlm.nih.gov/pmc/articles/PMC1730664; Comparing the Incidence of 

Self-Defense Gun Use and Criminal Gun Use, available at http://www.hsph.harvard.edu/ 

research/hicrc/files/Bullet-inslSpringl2009.pdf§ ; Ian Ayres & John J. Donohue III, Shooting 

Down the ‘‘More Guns, Less Crime’’ Hypothesis, 55 Stan L. Rev. 1193 (2003). 80 Violence Policy Center, Concealed Carry Killers, http://www.vpc.org/ccwkillers.htm. 81 Id. 82 Id. 83 Brady Campaign to Prevent Gun Violence, Gun Death & Injury Stat Sheet 2007–2009 

(December 6, 2010), available at http://www.bradycampaign.org/xshare/Facts/Gunl DeathlandlInjurylStatlSheetl2007ll2009lFINAL.pdf (citing Ctr. for Disease Control 

& Prevention, Nat’l Ctr. for Injury Prevention & Control, Injury Stats. Query & Rprt’g Sys. 

(2010) (reporting information on deaths in 2007 and injuries in 2009)). 

ed out, Lott has been accused of fabricating a study on which he 

bases the claim that 98 percent of defensive gun uses involved 

mere brandishing, as opposed to shooting. Malkin reported that 

Lott incorrectly tried to attribute the data to three different studies, and when another researcher offered to independently verify 

Lott’s findings, Lott claimed to have lost all of his data in a computer crash. He also could not produce any financial records, contemporaneous records or any of the students who supposedly 

worked on the survey.78 Other studies conclude that guns are far 

more likely to be used in crime than in self-defense. One such 

study found that the number of criminal gun uses outnumbered the 

self-defense use of a gun by a factor of at least 4 to 1.79

In 2009, the Violence Policy Center (VPC) began an ongoing research project to identify killings from May 2007 to the present involving citizens legally allowed to carry concealed handguns.80 This 

project has shown that, since May 2007, at least 385 people—including 11 law enforcement officers—have been killed in incidents 

not ruled self-defense involving private citizens legally allowed to 

carry concealed handguns. In that time period, the VPC documented 275 incidents in 32 states. In nearly 80 percent of the incidents (217) the concealed carry killer has already been convicted 

(79), committed suicide (132), or was killed in the incident (six). Of 

the 54 cases still pending, the vast majority (44) of concealed carry 

killers have been charged with criminal homicide, three were 

deemed incompetent to stand trial, and seven incidents are still 

under investigation. Four incidents were fatal unintentional shootings involving the gun of the concealed handgun permit holder. 

Twenty of the incidents were mass shootings, resulting in the 

deaths of 89 victims.81

Because most state systems that allow the carrying of concealed 

handguns in public by private citizens release little data about 

crimes committed by them, the primary source for this information 

is published news reports. It is likely that the actual number of 

fatal incidents involving citizens legally allowed to carry concealed 

handguns is far higher.82 Expanding the weakest state standards 

of concealed carry laws will endanger even more of our citizens. 

CONCLUSION

The answer to our national problem of gun violence is not that 

we need more people carrying concealed firearms on our streets. In 

1 year on average, almost 100,000 people in America are shot or 

killed with a gun. Specifically, in 1 year, 31,224 people died from 

gun violence and 66,768 people survived gun injuries.83 Gun vioVerDate Mar 15 2010 02:58 Nov 11, 2011 Jkt 019006 PO 00000 Frm 00034 Fmt 6659 Sfmt 6720 E:\HR\OC\HR277.XXX HR277

jbell on DSK4TPTVN1PROD with REPORTS
35 

84Philip J. Cook & Jens Ludwig, Gun Violence: The Real Costs (Oxford University Press 

2000). 85The National Right-to-Carry Reciprocity Act of 2011: Hearing on H.R. 822 Before the 

Subcomm. on Crime, Terrorism, and Homeland Security of the H. Comm. on the Judiciary, 

112th Cong. (2011) (statement of Charles H. Ramsey, Police Commissioner, Philadelphia Police 

Department). 

lence impacts society in countless ways beyond the loss of life and 

physical injuries to its victims: medical costs, costs of the criminal 

justice system, security precautions such as metal detectors, and 

reductions in quality of life because of fear of gun violence. These 

impacts are estimated to cost U.S. citizens $100 billion annually.84

We must not undermine the efforts of states to take measures to 

defend themselves against these harms. 

States are in the best position to determine which measures best 

protect their citizens, based on the circumstances and judgments 

peculiar to each state, and the Second Amendment does not confer 

a right to carry concealed firearms in violation of state law standards enacted to enhance public safety. If a state, for example, determines that a person convicted of misdemeanor assault on a police officer should not be a allowed to carry a concealed handgun 

within its border, Congress should not override this important public safety decision. As Commissioner Ramsey testified before the 

Subcommittee on Crime, Terrorism, and Homeland Security, ‘‘This 

bill would eliminate the right that states now have to set their own 

public safety laws, in consultation with law enforcement professionals. This legislation is not aligned with our vision for the future 

of policing. It is counter to what the field of law enforcement needs 

to create safer neighborhoods, towns and cities.’’ 85

For the forgoing reasons, we dissent. 

JOHN CONYERS, JR. 

HOWARD L. BERMAN. 

JERROLD NADLER. 

ROBERT C. ‘‘BOBBY’’ SCOTT. 

MELVIN L. WATT. 

ZOE LOFGREN. 

SHEILA JACKSON LEE. 

MAXINE WATERS. 

STEVE COHEN. 

HENRY C. ‘‘HANK’’ JOHNSON, JR. PEDRO R. PIERLUISI. MIKE QUIGLEY. 

JUDY CHU. 

TED DEUTCH. 

LINDA T. SA ́ NCHEZ. 

Æ 


jbell on DSK4TPTVN1PROD with REPORTS