GAO-12-717, GUN CONTROL: States' Laws and Requirements for Concealed Carry Permits Vary Across the Nation

GUN CONTROL

States’ Laws and

Requirements for

Concealed Carry

Permits Vary across

the Nation

Report to Congressional Requesters

July 2012

GAO-12-717

United States Government Accountability Office

GAO

United States Government Accountability Office

Highlights of GAO-12-717, a report to

congressional requesters

July 2012

GUN CONTROL

States’ Laws and Requirements for Concealed Carry

Permits Vary across the Nation

Why GAO Did This Study

According to state reporting to GAO,

there were at least 8 million active

permits to carry concealed handguns

in the United States as of December

31, 2011. States and local authorities

control the issuance of concealed carry

permits. Applicants who wish to obtain

such permits are required to meet

certain state eligibility requirements,

such as minimum age and the lack of a

felony conviction. States also decide

which other states’ permits to honor.

Typically, states enter into reciprocity

agreements that establish which out-

of-state permit holders can carry

concealed firearms within each state.

In recent years, Members of Congress

have introduced legislation that would

require each issuing state to recognize

any permit. GAO was asked to provide

information on the status of concealed-

carry permitting. This report describes

(1) the extent to which states allow

concealed carry permits, and how

select states’ eligibility requirements

and recognition of other states’ permits

differ, (2) what processes select states

use to help ensure they revoke permits

when holders no longer meet eligibility

requirements, and (3) how law

enforcement officials in select states

determine whether permits they

encounter are current and valid. GAO

gathered information on the number of

permits, laws, issuing authorities, and

reciprocity agreements for 50 states

and the District of Columbia, and

conducted a case study on 9 states

that issue permits. GAO selected these

states to reflect differences among

states’ eligibility requirements, state

reciprocity of permits, and permit-

issuing processes; the results cannot

be generalized across all states but

provide a broad understanding of the

different requirements and processes

states utilized in issuing permits.

What GAO Found

The number of states allowing concealed carry permits is increasing, and states

broadly differ in eligibility requirements and the extent to which they have

reciprocity agreements. In June 2002, 7 states and the District of Columbia

prohibited the concealed carry of handguns. As of March 2012, individuals can

carry concealed handguns in all but 1 state (Illinois) and the District of Columbia

(see fig. below). “Shall-issue” states—in which issuing authorities are required to

issue a permit to an applicant that fulfills the objective statutory criteria—

generally issue more permits than states with greater discretion in granting

permits (“may-issue” states). Because of differing eligibility requirements, some

states would issue a permit to an applicant, while others would not. For example,

some states define what constitutes a disqualifying felony differently or have

different firearms training requirements. As of March 2012, 39 states that issue

permits and Vermont (permits not required) recognize concealed carry permits

from other states. Of the 9 states that do not grant reciprocity, 8 are may-issue

states.

State Concealed Carry Permit Designation as of 2012

Issuing authorities from all 9 states included in GAO’s case study stated that they

take action to confirm an individual’s continued eligibility to hold a permit as part

of the permit renewal process; and issuing authorities from 8 of these 9 states

reported using mechanisms to monitor resident permit holders’ continued

eligibility between issuance and renewal. In these 8 states, issuing authorities

told GAO that they are notified if a permit holder commits a disqualifying act

within their state through law enforcement or state databases. After detecting a

disqualifying criminal offense or other disqualifying factors, each of the 9 states

begins the revocation process by notifying the permit holder. The states have

varying retrieval processes, and 3 of them have authority to impose a penalty for

failure to surrender a revoked permit or continuing to possess one.

Law enforcement in the 9 case study states that issue permits told GAO that

when encountering permits, such as during routine traffic stops, they visually

check them and can take additional steps, such as checking state databases, as

needed, to determine whether the permits are current and valid.

View GAO-12-717. For more information,

contact Carol R. Cha (202)512-8777 or

[email protected].

Page i GAO-12-717 Concealed Carry Permits

Letter 1

Background 5

States Allowing Concealed Carry Permits Have Increased, but

Eligibility Requirements and Extent of Reciprocity Differ 8

Select States Reported Monitoring if Certain Permits Should Be

Revoked and Having Processes to Revoke Them when Needed 23

Law Enforcement in Select States Visually Check Permits to Verify

Validity, among Other Actions 29

Appendix I Case Study State Summaries

Appendix II Objectives, Scope and Methodology

Appendix III State Issuing Authority, as of March 2012

Appendix IV State Concealed Carry Permit Designation, as of March 28, 2012

Appendix V Number of Valid Permits

Appendix VI Approximate Total Number of Active Permits by Residency

Appendix VII State Reciprocity, as of March 2012

Appendix VIII GAO Contacts and Staff Acknowledgments

Tables

Table 1: Change in States’ Concealed Carry Permit Designation,

2002 and 2012 8

Contents

Page ii GAO-12-717 Concealed Carry Permits

Table 2: Case Study States’ Specific Disqualifiers for Concealed

Carry Permits 17

Table 3: Case Study States’ Training Requirements to Qualify for a

Concealed Carry Permit 18

Table 4: Approximate Numbers of Revoked and Issued Permits,

2011 26

Table 5: Physical Characteristics of Case Study States’ Concealed

Carry Permits 30

Table 6: State Concealed Carry Permit Designation, as of March

2012 73

Table 7: Number of Valid Permits (as Reported by States) as of

December 31, 2011, unless noted otherwise 75

Table 8: Status for States that issue to Nonresidents, as of

December 31, 2011, unless otherwise noted 78

Figures

Figure 1: State Concealed Carry Permit Designation for 2002 and

2012 9

Figure 2: State Concealed Carry Permits Profile 2011 11

Figure 3: State Reciprocity as of March 2012 20

Figure 4: Length of Time Permit Is Valid for Initial Applicants 24

Page iii GAO-12-717 Concealed Carry Permits

Abbreviations

ATF Bureau of Alcohol, Tobacco, Firearms and Explosives

CA DOJ California Department of Justice

CCDW Carry of Concealed Deadly Weapon

CWP/CWL Concealed Weapon Permit/License

CHL/CHP Concealed Handgun License/Permit

CJIS Criminal Justice Information Services

CPL Concealed Pistol License

DUI driving under the influence

DWI driving while intoxicated

FBI Federal Bureau of Investigation

FOID Firearm Owner’s Identification Card

III Interstate Identification Index

LTC/LTCF License To Carry (Firearms)

NCIC National Crime Information Center

NGI Next Generation Identification

NICS National Instant Criminal Background Check System

NRA National Rifle Association

Nlets International Justice and Public Safety Network

This is a work of the U.S. government and is not subject to copyright protection in the

United States. The published product may be reproduced and distributed in its entirety

without further permission from GAO. However, because this work may contain

copyrighted images or other material, permission from the copyright holder may be

necessary if you wish to reproduce this material separately.

Page 1 GAO-12-717 Concealed Carry Permits

United States Government Accountability Office

Washington, DC 20548

July 17, 2012

The Honorable Dianne Feinstein

Chair, Caucus on International Narcotics Control

United States Senate

The Honorable F. James Sensenbrenner, Jr.

Chairman, Subcommittee on Crime, Terrorism, and Homeland Security

Committee on the Judiciary

House of Representatives

In 2010, approximately 118 million handguns were available for sale to, or

were possessed by, civilians in the United States.

States regulate if,

where, and how their residents can carry handguns—openly or

concealed.

According to state reporting, there were approximately 8

million active concealed carry permits in the United States as of

December 31, 2011.

Through the years, gun rights and gun control

advocates have debated the efficacy of carrying a concealed handgun

and constitutionality of the right to carry a concealed handgun. The

debates have included such issues as who may legally carry a concealed

handgun and where the concealed handgun may be legally carried (i.e.,

state parks, government buildings, public arenas, etc.), among other

issues. State and local authorities control the issuance of concealed carry

permits.

GAO estimate based on Congressional Research Service Report Gun Control

Legislation, (March 12, 2012) RL 32842 p. 5 and the Bureau of Alcohol, Tobacco,

Firearms and Explosives (ATF) Firearms Commerce in the United States Annual

Statistical Update 2012 (May 4, 2012).

Applicants who wish to obtain such permits are required to meet

For the purposes of this report, we will refer to firearms and weapons as handguns (i.e.,

pistols and revolvers)—although some states’ permits also define weapons as knives,

rifles, and billy clubs, and so forth.

This number is an estimate based upon state reporting to GAO. Given that many states

reported approximate numbers and some states that issue permits were unable to provide

the number of permits, the number is likely understated.

For the purposes of this report, we will refer to all permits as concealed carry permits.

States use different terms for licenses or permits to carry a concealed firearm, such as

Concealed Handgun License/Permit (CHL/CHP),Concealed Weapon Permit/License

(CWP/CWL), Concealed Firearm Permit/License, License To Carry (Firearms)

(LTC/LTCF), Carry a Concealed Deadly Weapon License (CCDW), Concealed Pistol

License (CPL), and so forth.

Page 2 GAO-12-717 Concealed Carry Permits

certain state eligibility requirements. For example, in many states, a

person must be at least 21 years old and not have any felony convictions

to receive a permit.

Currently, state law determines whether and to what

degree to honor other states’ permits. Typically, states enter into

reciprocity agreements that establish which out-of-state permit holders

can carry concealed firearms within each state. Congress has considered

the issue of concealed carry permitting and the concept of national

reciprocity. Most recently, Members of the 112th Congress have

proposed legislation that would address certain aspects of concealed

carry permitting as well as national reciprocity.

For example, Arizona specifically requires, among other things, that an individual be 21

years of age or older and have not been convicted in any jurisdiction of a felony unless

that conviction has been expunged, set aside, or vacated or in certain other limited

circumstances under Ariz. Rev. Stat. § 13-3112(E). For more information on select states’

eligibility requirements for concealed weapons permits, see appendix I.

Proposed legislation

currently pending in Congress would provide national reciprocity or allow

individuals that have a concealed carry permit issued from one state to be

eligible to carry a concealed weapon in any other state that issues

concealed carry permits. Other proposed legislation would require states

to have minimum standards for the process of issuing concealed carry

permits as well as minimum eligibility requirements to attain a permit.

Both gun rights and gun control advocates have raised concerns with a

For example, one proposed bill, H.R. 822, the National Right-to-Carry Reciprocity Act of

2011, would generally allow persons with valid state-issued concealed firearm permits or

licenses to carry a concealed firearm in any other state that also issues concealed

firearms permits or licenses, or in any other state that does not generally prohibit the

carrying of concealed firearms, 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

residents of the state. This proposed bill would not create a national licensing scheme, but

would require states that currently permit people to carry concealed firearms to recognize

other states’ valid concealed carry permits. Similarly to the National Right-to-Carry

Reciprocity Act of 2011, another proposed bill, the Secure Access to Firearms

Enhancement Act of 2011, H.R. 2900, 112th Cong. (2011), would generally allow a person

who is not prohibited by federal law from possessing, transporting, shipping, or receiving a

firearm, and is carrying a valid license or permit to carry a concealed weapon issued by a

state, to carry a concealed weapon in any state in accordance with the terms of the

license or permit and the laws of the state in which the firearm is carried concerning

specific types of locations in which firearms may not be carried. The Common Sense

Concealed Firearms Permit Act of 2011, S. 176, 112th Cong. (2011), another proposed

bill, would require states that allow residents of the state to carry concealed firearms to

establish a process to issue permits to residents of the state to carry concealed firearms

and require that each resident of the state seeking to carry a concealed firearm in the

state obtain a permit through this process. Further, in establishing a process, the state

would have minimum requirements related to the process as well as the eligibility

requirements of the applicant.

Page 3 GAO-12-717 Concealed Carry Permits

variety of proposed legislation related to concealed carry permitting and

national reciprocity. In this context, you requested that we provide

information on the status of concealed carry permitting. Accordingly, this

report describes

• the extent to which states allow concealed carry permits, and how

select states’ eligibility requirements and laws regarding recognition of

other states’ permits differ;

• the processes select states use to help ensure they revoke permits

when holders no longer meet eligibility requirements; and

• how law enforcement officials in select states determine whether

permits they encounter are current and valid.

To answer these objectives, we contacted 48 states to obtain information

on the number of valid concealed carry permits, denials, and revocations

in each state.

Further, we gathered information for 50 states and the

District of Columbia on their permit issuing laws (as they were as of

March 2012), issuing authorities, and reciprocity agreements, among

other things.

The remaining 2 states (Illinois and Vermont) and the District of Columbia do not issue

concealed carry permits, so the number of valid permits does not apply to them. However,

Vermont allows individuals to carry concealed handguns without a permit.

Moreover, we conducted a case study on 9 of the 50

states—Arizona, California, Florida, Georgia, Louisiana, Maryland,

Tennessee, Texas, and Virginia—which we selected to reflect differing

state eligibility requirements, state reciprocity of permits, and permit-

issuing processes. From these states, we obtained and analyzed state

data and information for 2011 on their eligibility requirements for issuing

permits, procedures for monitoring permit holders’ continued eligibility,

and the number of permits issued and revoked. In the 9 states included in

our case study that issue permits, we also interviewed state and local

officials responsible for issuing permits to obtain information on applicable

laws and procedures for issuing, monitoring, and revoking permits, and

entering into reciprocity agreements. In addition, we interviewed state and

local law enforcement officials in these states to obtain information on

On the basis of their permit issuing laws, states and the District of Columbia are generally

designated as:(1) No-issue: carrying concealed is prohibited; (2) May-issue: the issuing

authority has discretion to grant concealed carry permits to eligible individuals after

considering additional subjective prohibitors, such as the applicant’s history, character,

and intended purpose for carrying a firearm; (3) Shall-issue: a concealed carry permit

must be issued if no statutory reason for denial is revealed during a background check of

the applicant; and (4) Permit not required to carry concealed.

Page 4 GAO-12-717 Concealed Carry Permits

processes they use to determine whether permits are valid when needed.

The results from our case studies cannot be generalized across all states.

However, the information obtained from these case studies provides a

broad understanding of the different requirements and processes states

utilize in issuing permits. To assess the reliability of the data and

information, we asked the states about the systems they use to track the

data, any steps taken to verify accuracy, and any limitations to the data.

Our analysis was largely dependent on the availability of state data on the

number of concealed carry permits. In some cases, statewide data were

not available, and in other cases only data from certain time periods were

available. As a result of these limitations, we determined that the data

were sufficiently reliable solely to illustrate a minimum number of total

active permits and approximate number of state-specific permits.

In addition, we obtained information from and interviewed federal officials

with firearms-related experience and law enforcement responsibilities—

the Bureau of Alcohol, Tobacco, Firearms and Explosives (ATF) and the

Federal Bureau of Investigation (FBI). We obtained information from and

interviewed FBI Criminal Justice Information Services (CJIS) Division

officials on their federal databases that states query when screening

concealed carry permit applicants’ criminal history backgrounds. We

obtained information and interviewed ATF headquarters officials and field

special agents on their experience with and perspectives on state

concealed carry permits. We also interviewed non-governmental groups

representing a cross section of different views on concealed carry permit

issues to gain an understanding of the historical context on these issues.

We conducted our work from August 2011 through July 2012 in

accordance with all sections of GAO’s Quality Assurance Framework that

are relevant to our objectives. The framework requires that we plan and

perform the engagement to obtain sufficient and appropriate evidence to

meet our stated objectives and to discuss any limitations in our work. We

believe that the information and data obtained, and the analysis

conducted, provide a reasonable basis for any findings in this product.

Appendix II contains a more detailed discussion of our objectives, scope,

and methodology.

We interviewed organizations such as the Brady Campaign, Gun Owners of America,

Mayors Against Illegal Guns, and the National Rifle Association.

Page 5 GAO-12-717 Concealed Carry Permits

States’ concealed carry laws can allow handgun owners, under certain

conditions, to carry a loaded handgun either concealed on a person, in a

vehicle, or in public. “Concealed carry” means a person may carry a

handgun in a manner so that others cannot see the handgun. Generally,

these laws apply to handguns—i.e. pistols and revolvers; therefore, for

the purposes of this report, we use this category to define firearms.

States can be classified into one of the following four categories based on

their concealed carry laws:

States can allow civilians to carry a concealed handgun with or without a

permit. Generally, states regulate whether individuals can carry handguns

in public places such as schools, government buildings, and state and

national parks, among other restricted places.

• No-issue: The state does not permit residents or nonresidents to carry

concealed handguns.

• May-issue: The state applies discretion in granting permits to carry

concealed handguns.

• Shall-issue: Issuing authorities are required to issue a permit to an

applicant that fulfills the objective statutory criteria if no statutory

reason for denial exists.

• Permit not required: States do not require a permit to carry a

concealed handgun.

State laws also define which entities issue permits in their state. For

example, some states have delegated the authority to issue permits to a

single issuing authority (sometimes referred to as a centralized system),

such as departments of public safety, while other states have multiple

issuing authorities (referred to as a decentralized system), such as local

law enforcement and local courts. There are also states with a mixture of

States’ concealed carry laws can also regulate the carrying of other weapons (e.g.,

knives).

For the purposes of this report, we will refer to states’ issue designation as, no-issue,

may-issue, shall-issue, or permit not required. These designations exclude individuals

permitted to carry concealed weapons under federal law, such as qualified law

enforcement officers under 18 U.S.C. § 926B, or qualified retired law enforcement officers

under 18 U.S.C. § 926C.

Background

State Concealed Carry

Laws

Page 6 GAO-12-717 Concealed Carry Permits

both centralized and decentralized systems. Of the 48 states that issue

concealed carry permits (2 states do not issue permits—Illinois and

Vermont), 20 states have centralized issuing authorities that process all

applications and issue all permits for their state. Another 23 states have

decentralized issuing authorities that process applications and issue

permits at the jurisdictional level. The remaining 5 states use a combination

of centralized and decentralized issuing authorities. These states generally

utilize decentralized authorities for residents and a centralized authority for

nonresidents (see app. III for a list of states’ issuing authorities).

There is no federal law specifically addressing the issuance of concealed

carry permits at the state level. While the FBI does not have a direct role

in the issuance of concealed carry permits, the FBI serves as a source for

criminal history background information.

States may contact the FBI to

obtain national criminal history records, if any, on applicants who apply for

a concealed carry permit, but checking with the FBI prior to issuing a

state permit is not required by federal law. Generally, states request

name-based background checks from the FBI CJIS Division’s National

Instant Criminal Background Check System (NICS) to help them make a

determination about who is prohibited from receiving or possessing a

handgun and thus prohibited from obtaining a concealed carry permit.

During the course of a NICS background check, the applicant’s

descriptive information is checked against three computerized systems to

determine if the person is eligible to obtain the handgun. Those systems

include the National Crime Information Center (NCIC), the Interstate

Identification Index (III), and the NICS Index.

Under 28 U.S.C. § 534(a)(1), the Attorney General has the authority to acquire, collect,

classify, and preserve identification, criminal identification, crime, and other records.

If the applicant indicates

Brady Handgun Violence Prevention Act, Pub. L. No. 103-159, 107 Stat. 1536 (1993);

and GAO, Gun Control: Opportunities to Close Loopholes in the National Instant Criminal

Background Check System, GAO-02-720 (Washington, D.C.: July 12, 2002).

Specifically, a NICS check queries the following three information sources: (1) the

National Crime Information Center (NCIC) which, inter alia, provides access to fugitive

arrest warrants and protective orders; (2) the Interstate Identification Index (III), an index-

pointer system that provides access to state criminal history records and FBI criminal

history databases; and (3) the NICS Index, which contains information provided by local,

state, tribal, and federal agencies on persons prohibited from receiving or possessing

firearms under federal law that is not found in the NCIC or the III, e.g., information

concerning persons who have been adjudicated as mentally defective or committed to a

mental institution.

Federal Role

Page 7 GAO-12-717 Concealed Carry Permits

that he or she is not a U.S. citizen, a query is generated against the

immigration and naturalization databases maintained by the Department

of Homeland Security, U.S. Immigration and Customs Enforcement. ATF

is the primary agency that enforces federal firearms laws regulating the

commerce of firearms in the United States.

Although the federal government does not have a direct role in the

issuance of concealed carry, there is federal law making it unlawful for

individuals to receive or possess a handgun if they

(1) have been convicted in any court of, a crime punishable by

imprisonment for a term exceeding 1 year;

(2) are fugitives from justice;

(3) are unlawful drug users or are addicted to any controlled

substance;

(4) have been adjudicated as mental defective or have been

committed to a mental institution;

(5) are aliens illegally or unlawfully in the United States, or certain

other aliens admitted under a nonimmigrant visa;

(6) have been discharged from the Armed Forces under

dishonorable conditions;

(7) have renounced their U.S. citizenship;

(8) are the subject of certain types of a qualifying restraining order

of a court; or

(9) have been convicted in any court of a misdemeanor crime of

domestic violence.

In practice, state determinations about eligibility to obtain concealed carry

permits depend largely upon a person’s criminal history. When

determining who should receive a concealed carry permit, generally

states use eligibility prohibitors that are similar to the federal eligibility

18 U.S.C. § 922(g). Under 18 U.S.C. § 922(n), it is unlawful for any person who is under

indictment for a crime punishable by imprisonment for a term exceeding 1 year to ship or

transport in interstate or foreign commerce any firearm or ammunition or receive any

firearm or ammunition which has been shipped or transported in interstate or foreign

commerce. In addition, pursuant to 18 U.S.C. § 922(x)(2), generally it is unlawful for any

person who is a juvenile, a person that is less than 18 years of age, to knowingly possess

a handgun or ammunition that is suitable for use only in a handgun.

State Eligibility

Restrictions

Page 8 GAO-12-717 Concealed Carry Permits

restrictions that apply for possessing or receiving a handgun. For

example, persons convicted of a felony, the subject of certain types of

orders of protection, or who have been committed to a mental institution

are disqualified from receiving a concealed carry permit in many states.

Since 2002, more states are required by law to issue permits and more

permits have been issued to eligible applicants, although some states still

maintain discretion in determining who receives permits. States can issue

to either residents of the state only or to both residents and nonresidents,

depending on state law. Because eligibility requirements differ, an

individual could obtain a permit in one state but not another. In addition,

the number of states that recognize other states’ permits has grown since

2002, but some states do not recognize any other states’ permits.

Over time, more states have changed their concealed carry laws either

from no-issue or may-issue to shall-issue, as shown in table 1 below.

Table 1: Change in States’ Concealed Carry Permit Designation, 2002 and 2012

Number of States by Issue Designation June 2002 March 2012

No-issue States that Prohibit the

Concealed Carry of Handguns

7 states and the

District of Columbia

1 state and the

District of Columbia

Shall-Issue States 29 39

May-Issue States 13 10

States that Do Not Require a Permit to

Concealed Carry

1 4

Source: GAO analysis of state laws.

States Allowing

Concealed Carry

Permits Have

Increased, but

Eligibility

Requirements and

Extent of Reciprocity

Differ

The total number of states and the District of Columbia adds to 51.

Since 2002, More States

Required to Issue Permits

to Eligible Applicants,

though Some States Have

Discretion in Who

Receives a Permit

More States Are Granting

Permits

Page 9 GAO-12-717 Concealed Carry Permits

The total number of states and the District of Columbia adds to 55 in this analysis, because 4 states

(Alaska, Arizona, Rhode Island, and Wyoming) are counted in two categories. Alaska, Arizona, and

Wyoming do not require permits but are considered shall-issue; and Rhode Island provides may- and

shall-issue authority. Rhode Island law provides for two mechanisms for obtaining a permit: the

Rhode Island Attorney General has “may- issue” authority to issue permits under R.I. Gen. Laws §

11-47-18, and cities and towns have “shall-issue” authority, with limited discretion, to issue a permit,

under R.I. Gen. Laws § 11-47-11.

Figure 1 below shows changes in issue designation, by state, for 2002

and 2012. See app. IV for a list of issue designation by state).

Figure 1: State Concealed Carry Permit Designation for 2002 and 2012

Shall-issue states generally issue more permits than may-issue states

relative to the state population. (See app. V for information on the

approximate number of active permits by state as of December 31, 2011.)

Of the 48 states that issue permits, 45 provided us with permit

information. The top 5 states by ratio of active permits issued to the adult

population (20 years or older) are shall-issue states—Utah, Iowa, South

Shall-Issue States Issue More

Permits than May-Issue States

Page 10 GAO-12-717 Concealed Carry Permits

Dakota, Georgia, and Indiana.

The ratio of active permits relative to

adult population in Georgia and South Dakota (shall-issue states) is

approximately 9 percent and 11 percent respectively, while the same ratio

in California and Maryland (may-issue states) is approximately 0.1

percent and 0.3 percent respectively.

Of these 5 states, Utah, Iowa, and Indiana issue to both residents and nonresidents,

while Georgia and South Dakota issue to residents only.

See figure 2 for state-specific

profiles (see apps. III, IV, and V for detailed information on each state).

The states and percentages mentioned above include permits issued to both residents

and nonresidents.

Page 11 GAO-12-717 Concealed Carry Permits

Pa.*

Ore.*

Nev.*

Idaho*

Mont.

Wyo.

Utah*

Ariz.*

N.Mex.

Colo.

N.Dak.*

S.Dak.

Nebr.

Tex.*

Kans.

Okla.

Minn.*

Iowa*

Mo.

Ark.

La.

Ill.

Miss.

Ind.*

Ky.

Tenn.*

Ala.

Fla.*

Ga.

S.C.*

N.C.

Va.*

Ohio

N.H.*

Mass.*

Conn.*

Mich.

Calif.*

Wash.*

Wisc.

N.Y.*

N.J.*

Md.*

D.C.

Del.

R.I.*

Maine*

Vt.

W.VA.

Alaska

Hawaii*

Permit not required

No-Issue

State issue classification

Source: GAO analysis based on state reported data and state laws.

Shall-issue

Classified as both May

and Shall-Issue

May-issue

Permit not required and

Shall-Issue

Represents number of

resident and non-resident

permits

Interactive graphic

Figure 2: State Concealed Carry Permits Prole 2011

Move mouse over the name of each state for its concealed carry information.

Page 12 GAO-12-717 Concealed Carry Permits

If applicants do not meet states’ eligibility requirements, issuing

authorities may deny the applicant a permit. Of the 45 states that reported

permit information, 36 stated that they track denials and 29 provided

some common reasons for the denials. For example, in 2011, Louisiana

reported that the state denied approximately 400 permits and issued

12,000 concealed handgun permits (this includes original and renewal)

citing failure to provide information within the specified time frames as

required by the state as a common cause of denial. Likewise, Florida

reported that from July 1, 2010, to June 30, 2011, the state issued

approximately 124,000 concealed carry permits (this includes original),

and denied approximately 2,000 permits. Like Louisiana officials, Florida

officials identified failure to provide required information, such as proof of

citizenship and legible fingerprint cards, as common reasons for denial.

Authorities in 26 states (10 may-issue and 16 shall-issue) that grant

permits have discretion in making permit decisions. While 10 may-issue

states have broad discretion in making permit decisions, authorities in 16

shall-issue states have limited discretion in making permit decisions, if no

statutory reason for denial exists. In Virginia (a shall-issue state), for

example, issuing authorities stated that they can deny individuals whom

the court finds are likely to use a weapon unlawfully or negligently to

endanger others, based on a preponderance of the evidence.

Similarly,

in Georgia (a shall-issue state), issuing authorities noted that applicants

are subject to denial if the issuing authority determines, among other

things, that the applicant is not of good moral character.

In the 10 may-issue states, issuing authorities may issue a permit to

eligible individuals after considering additional requirements, such as the

However, both

Virginia and Georgia officials told us that although they have the

discretion to deny a permit based on the factors mentioned above, it is

rarely utilized.

Va. Code Ann. § 18.2-308(E)(13). The sheriff, chief of police, or attorney for the

Commonwealth may submit to the court a sworn written statement indicating that, in the

opinion of the sheriff, chief of police, or attorney of the Commonwealth, based upon a

disqualifying conviction or upon specific acts set forth in the statement, the applicant is

likely to use a weapon unlawfully or negligently to endanger others.

Ga. Code Ann. § 16-11-129(d)(4). The judge of the probate court shall issue an

applicant a license or renewal license to carry any weapon unless facts establishing

ineligibility have been reported or unless the judge determines such applicant has not met

all the qualifications, is not of good moral character, or has failed to comply with any of the

statutory requirements to receive a license.

About Half of the States’ Laws

Provide Issuing Authorities

Discretion, beyond Standard

Eligibility Requirements, in

Granting Permits

Page 13 GAO-12-717 Concealed Carry Permits

applicant’s history and personal character. For example, Maryland issues

permits to residents who, on the basis of an investigation, can

demonstrate a good and substantial reason for needing a permit, and

Maryland’s issuing authority is responsible for making the determination

of what constitutes a good and substantial reason.

For example, in one

instance, Maryland’s issuing authority denied a permit to a community

activist working in anti-drug and anti-crime programs because, although

the activist claimed that people had told him that others had made threats

of bodily harm against him, the activist could not provide the names of the

persons who had made the threats and had not reported any assaults. In

upholding the denial on appeal, the issuing authority explained that a

good and substantial reason should include additional evidence, rather

than be based solely on personal anxiety or concern about

unsubstantiated threats. Similarly, issuing authorities in California use

discretion to determine if the applicant is of good moral character, and

good cause exists for the issuance of the permit.

Md. Code Ann. Pub. Safety§ 5-306(a)(5)(ii). However, the United States District Court

for the District of Maryland held in Woollard v. Sheridan, Civil Case No. L-10-2068, 2012

WL 695674 (Mar. 2, 2012) that Maryland’s requirement of a “good and substantial reason”

for issuance of a handgun permit is insufficiently tailored to the State’s interest in public

safety and crime prevention and therefore this portion of the Maryland law is

unconstitutional because it impermissibly infringes upon the right to keep and bear arms

as guaranteed by the Second Amendment. The State of Maryland has filed a timely

appeal of this ruling.

For example, issuing

authorities in California (local law enforcement) told us that an example of

a good cause is a business owner who may regularly retain cash on-hand

used to pay employees. The issuing authorities of the 2 may-issue states

in our case study also conduct additional detailed investigations (e.g.,

physical verification of residency, reviews of applicants’ financial history,

and in-person interviews, etc.) of permit applicants. For example,

Maryland’s issuing authority sends local law enforcement to an

applicant’s neighborhood or place of business to verify the applicant’s

address and help decide whether to issue a permit, according to the

Maryland State Police. Likewise, several of the issuing authorities in

California that we interviewed noted that they hold face-to-face interviews

with applicants when determining permit eligibility.

Cal. Penal Code § 26150(a)(1)-(2).

Page 14 GAO-12-717 Concealed Carry Permits

Of the 48 states that issue permits, 22 states’ laws allow for authorities to

issue only to residents of their state, while 26 allow for issuance to both

residents and nonresidents. State laws allow issuing authorities to issue

permits to nonresidents in 10 of these 26 states on a limited basis. For

example, the issuing authorities in California may issue permits to

nonresidents whose principal place of employment or business is within

the state.

The remaining 16 states do not have such limitations. See

appendix VI for a listing of states that issue nonresident permits and the

number of permits issued as of December 31, 2011.

While the majority of states share some common eligibility requirements

for qualifying an individual for a concealed carry permit, such as firearms

safety training and being at least 21 years of age, the 9 states included in

our case study that issue permits define certain eligibility requirements

very differently, which can affect who is granted a permit (see app. I for

individual state summaries in our case study). States disqualify

individuals convicted of a felony, but these 9 states differed in defining

what crimes constitute a felony (i.e., a particular crime could be a felony

in a particular state, but a misdemeanor in another). For example, in

Virginia, certain types of larceny are considered Class 6 felonies and

would disqualify an individual convicted of these crimes from being

eligible for a concealed carry permit.

California issues permits to applicants whose principal place of employment or business

is in the country or city, and the applicant spends a substantial period of time in that place

of employment or business. Cal. Penal Code, § 26150(a)(3). However, this type of permit

is valid for any period of time not to exceed 90 days from the issue date of the license

(Cal. Penal Code, § 26220(b)) and is valid only in the county in which it was originally

issued Cal. Penal Code, § 26220(b).

If an individual either takes money

or an item worth at least $5 directly from a person, or takes goods valued

The least severe punishment for a felony in Virginia is for a Class 6 felony, which has an

authorized punishment for conviction of a term of imprisonment of not less than 1 year nor

more than 5 years, or in the discretion of the jury or the court trying the case without a

jury, confinement in jail for not more than 12 months and a fine of not more than $2,500,

either or both. Va. Code Ann. § 18.2-10. By statute in Virginia, any person who (i) commits

larceny from the person of another of money or other thing of value of $5 or more, (ii)

commits simple larceny not from the person of another of goods or chattels of the value of

$200 or more, or (iii) commits simple larceny not from the person of another of any

firearm, regardless of the firearm’s value, shall be guilty of grand larceny, punishable by

imprisonment in a state correctional facility for not less than 1 nor more than 20 years or,

in the discretion of the jury or court trying the case without a jury, be confined in jail for a

period not exceeding 12 months or fined not more than $2,500, either or both. Va. Code

Ann. § 18.2-95.

More than Half of the States

Grant Permits to Nonresidents

who are Eligible

States’ Eligibility

Requirements Differ; Thus

Some States Would Issue a

Permit to an Applicant and

Others Would Not

Page 15 GAO-12-717 Concealed Carry Permits

at $200 or more not directly from a person, he or she could be convicted

of a Class 6 felony in Virginia. Alternatively, in Tennessee, if an individual

commits a crime of theft of property or services that is valued at $500 or

less, it would be classified as a Class A misdemeanor and the individual

would remain eligible for a concealed carry permit.

In another example, Louisiana, Tennessee, and Virginia all disqualify

applicants if they have been convicted of driving while intoxicated (DWI)

or driving under the influence (DUI), but each state has its own definitions

for what warrants disqualification. For instance, Louisiana disqualifies

applicants who have been convicted of operating a vehicle while

intoxicated at any time in the 5 years before the individual applied for a

permit,

Thus, permit

applicants who have committed a particular crime could be eligible to

receive a permit in some states, but not in others.

while Virginia uses the prior 3 years,

and Tennessee

disqualifies applicants who were convicted two or more times within 10

years of the date of the application of driving under the influence and one

of the convictions has occurred within 5 years from the date of application

or renewal.

Some states also have unique eligibility requirements that may disqualify

applicants. For example, Louisiana’s, Florida’s, and Tennessee’s laws

Thus, it is possible for an applicant who was convicted of a

DWI in Virginia or DUI in Tennessee 4 years ago to qualify for a permit in

those states, but not in Louisiana; and an applicant who was convicted of

two DWIs in Virginia 5 years ago to qualify for a permit, while in Louisiana

and Tennessee an individual convicted of two DWIs or DUIs within 5

years of applying for a permit would be ineligible.

Tenn. Code Ann. § 39-14-105. In Tennessee, “theft” constitutes a single offense

embracing the separate offenses that were referenced as embezzlement, false pretense,

fraudulent conversion, larceny, receiving or concealing stolen property, and other similar

offenses. Tenn. Code Ann. § 39-14-101. Further, a person commits theft of property if,

with intent to deprive the owner of property, the person knowingly obtains or exercises

control over the property without the owner’s effective consent. Tenn. Code Ann. § 39-14-

103(a).

La. Rev. Stat. Ann. § 40:1379.3(C)(8).

Va. Code Ann. § 18.2-308(E)(9).

Tenn. Code Ann. § 39-17-1351(c)(11). According to Tennessee’s Department of Public

Safety and Homeland Security, if a person is currently under the jurisdiction of the court

for driving under the influence and that person’s driver’s license is revoked, the person is

ineligible for a concealed carry permit.

Page 16 GAO-12-717 Concealed Carry Permits

specifically disqualify applicants who suffer from a mental or physical

infirmity,

while the other 6 states in our case study that issue permits do

not.

Similarly, Texas and Tennessee disqualify applicants for

delinquency on child support.

The other 7 states in our case study that

issue permits did not cite this as a factor for denial or revocation. See

table 2 below for a listing of state disqualifiers for the 9 states included in

our case study.

La. Rev. Stat. Ann. § 40:1379.3(C)(5) (disqualifying an applicant for a concealed

handgun permit who suffers from a mental or physical infirmity due to disease, illness, or

retardation which prevents the safe handling of a handgun); Fla. Stat. Ann. § 790.06(2)(c),

(i) (disqualifying an applicant for a license who suffers from a physical infirmity which

prevents the safe handling of a weapon or firearm; or has been adjudicated an

incapacitated person by Florida statute, or similar laws of any other state, unless 5 years

have elapsed since the applicant’s restoration to capacity by court order). Tenn. Code

Ann. § 39-17-1351(c)(12)(generally disqualifying an applicant that has been adjudicated

as a mental defective, been judicially committed to or hospitalized in a mental institution

by statute, has had a court appoint a conservator for the applicant by reason of a mental

defect, or has been judicially determined to be disabled by reason of mental illness,

developmental disability or other mental incapacity).

The other select states may refer to mental deficiencies or psychiatric disorders that

disqualify applicants for eligibility for a permit. In Georgia, under Ga. Code Ann. § 16-11-

129(b)(2)(J), any person who has been hospitalized as an inpatient in any mental hospital

within the five years immediately preceding the application for a permit may be prohibited

from eligibility for a permit.

Tex. Gov’t Code Ann. § 411.172(a)(10)-(11). Under 42 U.S.C. § 666(a)(16), each state

must have procedures under which the state has (and uses in appropriate cases) authority

to withhold or suspend, or to restrict the use of driver’s licenses, professional and

occupational licenses, and recreational and sporting licenses of individuals owing overdue

support or failing, after receiving appropriate notice, to comply with subpoenas or warrants

relating to paternity or child support proceedings. Some states may consider a concealed

carry permit to be a “recreational” or “sporting” license. For instance, Tennessee considers

any concealed carry permit to be deemed a “license” when dealing with the enforcement

of child support obligations through license denial and revocation. Tenn. Code. Ann. § 39-

17-1351(v).

Page 17 GAO-12-717 Concealed Carry Permits

Table 2: Case Study States’ Specific Disqualifiers for Concealed Carry Permits

Arizona

California

Florida

Georgia

Louisiana

Maryland

Tennessee

Texas

Virginia

Abuse of controlled

substances

X X X X X X X X X

Conviction of a

felony

X X X X X X X X X

Mental deficiencies

or psychiatric

disorders

X X X X X X X X X

Subject of a

protective/restraining

order

X X X X X X X X X

Discharged from the

armed forces under

dishonorable

conditions

X X X X X X X X

Conviction for a

crime of domestic

violence

X X X X X X X

Chronic/habitual use

of alcohol

X X X X X X X

History of violent

behavior

X X X

Needs a “good and

substantial” reason

to carry

X X

Mental or physical

Infirmity

X X X

Must be of “good

moral character”

X X X

Violent

misdemeanor

X X X X

Delinquency in the

payment of child

support

X X X

Delinquency in the

payment of taxes

X X

Source: GAO analysis of state laws in the 9 states in its review.

The laws of 8 of the 9 states we examined that issue permits also require

applicants to complete training related to firearms safety to qualify for a

permit; however, the training requirements differ considerably. These

requirements range from a list of approved training courses with no

specified curriculum to a prescriptive state curriculum that can include a

combination of classroom and live fire proficiency testing, which table 3

illustrates (also see app. I for state summaries):

Page 18 GAO-12-717 Concealed Carry Permits

Table 3: Case Study States’ Training Requirements to Qualify for a Concealed Carry Permit

State

Training

requirement

Live fire required

Hours of

Instruction required

Proficiency

requirement

(written or shooting)

Specific topics

as prescribed by state

regulations/laws covered

Tennessee Yes Yes: 48 rounds (12

rounds each at 3, 7,

and 15 yards, as

well as a distance

between 2 and 25

yards specified by

the instructor)

8 (4 hours of

classroom and 4 hours

of firing range.)

70% on both written

and shooting exams

Handgun Nomenclature,

function, and operation;

handgun Safety, cleaning, and

storage; legal liabilities of

carrying a handgun

Texas Yes Yes Between 10 and 15 70% on both written

and shooting exams

Use of deadly force; Handgun

use, proficiency, and safety;

nonviolent dispute resolution;

proper storage practices with

an emphasis on child access

prevention

Arizona Yes

Not specified No

No Not specified

California

Yes Not specified Up to 16 hours

75% on both written

and shooting exams

Firearm safety; and permissible

use of a firearm laws

Florida Yes

Yes Not specified Yes

Not specified

Louisiana

Yes

Not specified Not specified

Child access prevention

Virginia Yes

Not specified Not specified

Not specified

Georgia

No Not applicable Not applicable Not applicable Not applicable

Maryland No

Not applicable Not applicable Not applicable Not applicable

Source: GAO analysis of state information.

Applicants in these states can fulfill their training requirement by taking a state-approved National

Rifle Association, law enforcement, or other firearms safety-training course, or by presenting

evidence of experience with a firearm through participation in current military service or proof of an

honorable discharge from any branch of the armed services. In Florida, an applicant may also

demonstrate firearm proficiency by presenting evidence of equivalent experience with a firearm

through participation in organized shooting competition. Fla. Stat. Ann. § 790.06(2)(h)5.

For certain states, the amount of training and the specific topics are not specified in their state laws.

Maryland does not require training for applicants wishing to obtain a permit for personal protection.

However, other applicants (e.g., security guards) have to show evidence of training completion to

qualify for a permit.

Further, differences in the information required by issuing authorities for

eligibility determination exist not only between states but within states.

Issuing authorities in some decentralized states augment their application

process with additional requirements, which means the steps an

individual must take to get a permit will vary by jurisdiction. For example,

the issuing authority in one of the California counties we interviewed

reported that it requires applicants to have three letters of reference

before considering applicants for a permit. Other California counties in our

review do not have this requirement. In another example, in Virginia, a

Page 19 GAO-12-717 Concealed Carry Permits

shall-issue state, the decision of requiring applicants to submit fingerprints

was left to the discretion of each issuing authority, however this discretion

has been removed by the Virginia legislature effective July 1, 2012.

As of March 2012, 39 of the 48 states that issue permits and Vermont allow

concealed carry, and recognize permits from other states. Of these, the

number of other states whose permits they recognize varies, as follows:

• 7 states recognize permits issued in 1 to 19 states,

• 17 states recognize permits issued in 20 to 39 states, and

• 15 states recognize permits issued in 40 or more states—of these, 13

states recognize permits issued in all 47 other states that issue permits.

• Vermont does not require a permit to carry concealed handguns and

does not issue permits (residents and nonresidents can carry

concealed handguns).

The other 9 states that issue permits do not recognize permits issued

from other states; 8 of these states are may-issue states. In addition,

Illinois and the District of Columbia do not allow concealed carrying of

handguns or issue permits, nor do they recognize other states’ permits.

Over the last 10 years, shall-issue states have increasingly honored more

states’ permits. For example, Georgia honored 12 states’ permits in 2002,

but increased that number to 26 by 2012. Similarly, Louisiana honored 5

states’ permits in 2002, but honored 38 states’ permits as of March 2012.

Figure 3 shows which states’ permits each state will recognize (see app.

VII for a listing by state).

Pursuant to H.B. 754, 2012 Va. Acts ch. 175, the Virginia legislature amended the

Virginia statute governing the issuance of concealed handgun permits, Va. Code Ann. §

18.2-308, to remove the option for a locality to require that an applicant for a concealed

handgun permit submit fingerprints as part of the application effective July 1, 2012.

Alaska, Arizona, Wyoming, and Vermont do not require permits to carry concealed

handguns; however, Alaska, Arizona, and Wyoming issue permits to their residents so

that they may carry concealed handguns outside their state and other states may

recognize these permits, whereas Vermont does not issue any permits.

Illinois law requires anyone acquiring or possessing a firearm to have a Firearm Owner’s

Identification Card (FOID card). 430 Ill. Comp. Stat. 65/2(a)(1).

Majority of States

Recognize Permits of at

Least 20 Other States; May-

Issue States Generally Do

Not Grant Reciprocity

Page 20 GAO-12-717 Concealed Carry Permits

Pa.

Ore.

Nev.

Idaho

Mont.

Wyo.

Utah

Ariz.

N.Mex.

Colo.

N.Dak.

S.Dak.

Nebr.

Tex.

Kans.

Okla.

Minn.

Iowa

Mo.

Ark.

La.

Ill.

Miss.

Ind.

Ky.

Tenn.

Ala.

Fla.

Ga.

S.C.

N.C.

Va.

Ohio

N.H.

Mass.

Conn.

Mich.

Calif.

Wash.

Wisc.

N.Y.

N.J.

Md.

D.C.

Del.

R.I.

Maine

Vt.

W.VA.

Alaska

Hawaii

Permits from Other States that are Recognized by this State

States that Recognize Permits Issued in this State

2012 State

Reciprocity

Profile

Source: GAO analysis of state published information.

Interactive graphic

Figure 3: State Reciprocity as of March 2012

Move mouse over the black and teal circle in each state to see carry permit information for states.

Page 21 GAO-12-717 Concealed Carry Permits

In general, shall-issue states recognize permits from more states than

may-issue states. For example, Texas honors the permits of 40 states,

while 32 states honor Texas permits; and Arizona and Tennessee honor

the permits of 47 states, while 35 states honor Arizona permits, and 37

honor Tennessee permits. Alternatively, may-issue states do not

generally grant reciprocity. Of the 10 may-issue states, Alabama and

Delaware are the only states whose laws allow for recognition of permits

issued by other states.

• Tennessee and Arizona (shall-issue states), as required by law, will

recognize permits issued in any other state.

States may not grant reciprocity for a number of

reasons. For example, states may require that eligibility requirements are

similar to those of their own state, or that similar background checks are

conducted on permit applicants; if this is not the case, they are unlikely to

enter into a reciprocity agreement. For the 9 states included in our case

study, state laws prescribe the criteria for recognizing other states’

permits, as discussed below.

• Florida,

Georgia,

and Louisiana’s (shall-issue states) laws require

that they can only recognize a state if the other state recognizes their

permit.

• Under Texas (a shall-issue state) law, the Governor of Texas can only

enter into reciprocity agreements with states if the Texas Attorney

General determines that the other states check two of the three

Ala. Code § 13A-11-85, Del. Code Ann. tit. 11, § 1441(j).

Tenn. Code Ann. § 39-17-1351(r), (recognizing that a facially valid handgun permit,

firearms permit, weapons permit or license issued by another state is valid in Tennessee

according to its terms and is treated as if it is a handgun permit issued by Tennessee;

provided, however, this is not construed to authorize the holder of any out-of-state permit

or license to carry any firearm or weapon other than a handgun within the state). Ariz.

Rev. Stat. § 13-3112(Q) (recognizing concealed weapon permits issued by other states if

the permit is recognized as valid in the issuing state, and the permit holder is legally

present in Arizona and not legally prohibited from possessing a firearm in Arizona).

However, even when these requirements are met, a person with a permit from another

state may not carry a concealed weapon in Arizona if the person is under 21 years of age,

or is under indictment for, or has been convicted of, a felony in any jurisdiction, unless the

conviction has been expunged, set aside or vacated, or the person’s rights have been

restored pursuant to Ariz. Rev. Stat. § 13-3112(S).

Fla. Stat. Ann. § 790.015.

Ga. Code Ann. § 16-11-126(e).

La. Rev. Stat. Ann. § 40:1379.3(T)(2).

Page 22 GAO-12-717 Concealed Carry Permits

criminal history databases that make up NICS when screening

applicants for a concealed carry permit.

• Virginia (a shall-issue state) law allows for recognition of permits

issued only in states that provide the means for validation of a permit

24 hours a day, among other things.

• California and Maryland (may-issue states) alternatively, by law, do

not recognize permits issued in any other state.

States also have the ability to rescind reciprocity agreements, particularly

if reciprocal states make changes to their concealed carry laws or

requirements. For example, according to a Florida issuing authority

official, Nevada no longer recognizes Florida permits because the time

between renewals, and subsequent background checks, was changed

from 5 to 7 years in 2009, and thus deemed too long for Nevada’s

standards.

Currently, permit holders who want to carry concealed during their travel

to or through other states must know which states will recognize their

permits or else they must obtain a nonresident permit in the state they are

traveling to or through. This can be challenging since state laws change

regularly and permit holders may not always be aware of the most recent

changes, though state websites post information on whose permits they

honor. For example, because of a recent change in Louisiana’s

reciprocity laws, while Louisiana recognizes nonresident permits issued in

other states, Louisiana residents can no longer use a nonresident permit

from another state to carry a concealed weapon in Louisiana.

Tex. Gov’t Code Ann. § 411.173(b). Texas will only recognize permits issued in states

that conduct background checks in NCIC and III.

Va. Code Ann. § 18.2-308(P).

La. Rev. Stat. § 40:1379.3(T)(4).

Page 23 GAO-12-717 Concealed Carry Permits

All 9 states in our case study reported reconfirming permit holders’

eligibility at renewal, and 8 reported having mechanisms to monitor

eligibility between issuance and renewal. These 9 states utilize similar

methods to revoke permits, provide for an appeal process, and use

varying processes to retrieve revoked permits.

Issuing authorities from all 9 states included in our case study reported

that they take action to confirm an individual’s continued eligibility to hold

a permit as part of the permit renewal process, and 8 of these 9 states

also use mechanisms to monitor resident permit holders’ continued

eligibility between issuance and renewal. As part of this process, issuing

authorities consider the length of time permits are valid. During this

period, they look for any violations committed by the permit holders since

issuance of the permit. The length of time that issuing authorities have to

monitor permits holders generally ranges from 1 to 7 years, as shown in

figure 4, with the majority (38 of 48) of the states that issue permits

having a 4 to 5-year period of validity (see app. V for specific state

information on length of time a permit is valid).

Select States

Reported Monitoring

if Certain Permits

Should Be Revoked

and Having Processes

to Revoke Them when

Needed

Select States Reported

Having Mechanisms to

Monitor Continued

Eligibility

Page 24 GAO-12-717 Concealed Carry Permits

Figure 4: Length of Time Permit Is Valid for Initial Applicants

In 8 of the 9 states that issue permits in our case study, issuing

authorities are to be notified if a resident or nonresident permit holder

commits a disqualifying act within their state through law enforcement or

state databases. For example, according to officials from the Virginia

State Police, they monitor their state criminal databases on a daily basis

and receive information from the courts that they use to identify resident

permit holders who commit offenses that would make them ineligible to

hold permits. In such cases, the Virginia State Police is to inform the

state’s local permit issuing authorities via fax when permit holders are

convicted of a criminal offense or commit an act that would make them

ineligible. However, authorities may not be made aware if permit holders

commit disqualifying acts outside of their state until conducting

background checks during the renewal period or if an out-of-state law

enforcement official contacts the state issuing authority. In Florida and

Tennessee, issuing authority officials said that they receive arrest reports

and review the reports for matches against their permit databases, and

when necessary, take appropriate action, such as revoking the permit. In

Arizona, California, Louisiana, Maryland, Texas, and Virginia, issuing

Page 25 GAO-12-717 Concealed Carry Permits

authority officials reported that they receive an automatic alert if permit

holders are arrested within their state, which they refer to as “rap back.”

According to FBI officials, in response to user needs including those of

law enforcement for notification of nationwide, subsequent criminal

activity, the FBI is developing a national Rap Back service. Specifically,

through the Next Generation Identification’s (NGI) Rap Back Service of

the FBI CJIS Division, states may have the opportunity to subscribe to

this service and automatically be notified of subsequent arrests across

the United States for crimes committed by permit holders and other

individuals who have had a federal background check. In order for states

to use FBI’s NGI Rap Back, technical and legislative updates may be

required.

The issuing authorities in these states then review the charges and take

appropriate action, to include revoking of a permit if warranted.

In Georgia, the remaining case study state, the state’s 159 county

probate courts that issue permits in the state could become aware of

disqualifying acts committed by permit holders through other means. For

example, according to Georgia permit issuing authority officials, law

enforcement entities within the issuing county may call the issuing

probate courts of permit holders who have committed disqualifying acts,

which may result in the court revoking the permit. Additionally, probate

court officials could become aware of disqualifying acts committed by

permit holders through other means, such as reading or scanning the

local newspaper and watching local news television broadcasts, which

may result in a revocation.

The FBI’s NGI Rap Back Service is expected to be available to

states by the summer of 2014.

A “rap back” or “hit notice” program will inform a designated entity (i.e., state police)

when an individual who has undergone a fingerprint-based background check, and whose

fingerprints are retained by a criminal history repository after the check, is subsequently

arrested. His or her fingerprints, obtained after the arrest, are matched against a database

that contains the fingerprints that were initially submitted. Designated entities are then

notified of the individual’s arrest.

With respect to legislation, states that wish to use the FBI’s NGI Rap Back services

need legislation requiring concealed carry permit applicants to be fingerprinted and a

background check conducted at the federal level. Further, state legislation would also

have to allow for retention of those fingerprints at the federal level for use in the FBI’s NGI

Rap Back Services.

Page 26 GAO-12-717 Concealed Carry Permits

Of the 45 states that reported permitting information, 35 reported that they

track revocation information, such as the number of permits revoked and

the general reasons for the revocations. For the 9 states in our case

study, in 2011, the number of revocations per state ranged from

approximately 30 to 900. All except 1 select state (Georgia) provided data

on the number of revocations for 2011.

Table 4: Approximate Numbers of Revoked and Issued Permits, 2011

As shown in table 4, the number

of revocations and issuances vary across the case study states.

State Revoked Issued

Virginia 920 49,000

Texas 900 143,700

Florida (fiscal year) 790 123,800

Maryland 270 1,700

California 150 32,700

Tennessee 100 95,000

Louisiana 60 12,000

Arizona 30 12,200

Source: GAO analysis of state reported data.

Generally, issuing authorities in the 9 states in our case study that issue

permits revoke permits when a permit holder commits a criminal offense,

such as a felony, that would make the individual no longer eligible to hold

a permit. In Virginia, an issuing authority reported that a common reason

for a revocation is if a permit holder is found to be driving under the

influence. In Louisiana, the issuing authority reported that a common

reason for a revocation is if a permit holder failed to notify the department

of public safety of an arrest within 15 days. In Virginia, for example, a

revocation could also be warranted if the permit holder has a noncriminal

prohibition against carrying a concealed firearm, such as being diagnosed

with a mental illness or subject to a domestic violence restraining order.

For example, in Arizona, if a judge orders a permit holder to receive

mental health treatment or a permit holder is involuntarily committed to a

mental health facility, the holder’s permit is revoked.

Georgia does not have a centralized database to track permit information from its 159

permit issuing authorities. Rather, each permit issuing authority may track revocations for

its respective jurisdiction.

Most States Track

Revocations, and Select

States Use Similar

Mechanisms to Revoke

Permits and Provide for an

Appeals Process

Page 27 GAO-12-717 Concealed Carry Permits

After detecting a disqualifying criminal offense or other disqualifying

factors, officials from each of the 9 states in our case study that issues

permits reported that they begin the revocation process by notifying the

permit holder through a letter or court order, or in some cases, issuing

authorities send law enforcement to deliver the letter and retrieve the

permit. The letter is to outline the procedures for either appealing the

revocation (if applicable) or physically surrendering the permit. Further, all

9 states in our case study have an appeals process.

Some states, such

as Louisiana and Texas, have a suspension process until the appeal

process is completed, final disposition is determined by a court, or the

individual surrenders the permit. For example, when a permit holder is

arrested, the issuing authority is to suspend the permit until the final

disposition has been determined by the court. If the court convicts the

permit holder, the issuing authority is to revoke the permit. For example,

Louisiana offers permit holders the option of providing additional evidence

for the issuing authority to consider as part of its appeals process before

final revocation. Texas offers its permit holders the option of requesting a

hearing to review the denial, suspension, or revocation of their permit.

As mentioned above, the 9 states in our case study that issue permits

have mechanisms for indicating in their respective systems that a permit

has been revoked. In addition, these states have varying retrieval

processes. For example:

• In Arizona, the permit holder is required to surrender a revoked

permit. If the holder does not surrender the permit and is caught by

law enforcement with the revoked permit, the law enforcement officer

is directed to seize the permit and return it to the issuing authority.

• In California, although doing so is not a requirement in state law, local

law enforcement officials said that permit holders are asked to

physically return their revoked permit to the issuing authority (a city

police department or sheriff’s department).

• Some Georgia issuing authorities send a letter communicating the

court order via certified mail notifying permit holders that their permits

have been revoked and to surrender the permits. If the issuing

authorities do not receive a response, they can send local law

enforcement to retrieve the revoked permit.

In California, the ability to appeal a permit issuance or non-issuance is at the discretion

of the local issuing authority (i.e., county sheriff or city police department).

Select States Use Different

Mechanisms to Retrieve

Revoked Permits

Page 28 GAO-12-717 Concealed Carry Permits

• Virginia’s issuing authorities use different processes to retrieve

revoked permits. For example, one issuing authority in Virginia sends

local law enforcement to the permit holder’s residence to retrieve the

revoked permit. Another jurisdiction requires the permit holder to

come to the circuit court for a hearing. The judge may charge the

permit holder with contempt if the person does not show up for the

hearing.

Of the 9 states in our case study that issue permits, 3 (Georgia, Maryland,

and Tennessee) reported that they can impose a penalty for failure to

surrender a revoked permit or continuing to possess one.

Permit issuing

authority officials in 5 out of the remaining 6 states (Arizona, California,

Florida,

Louisiana, Texas, and Virginia) said that they were not aware of

any instances where individuals have presented revoked permits to law

enforcement and noted that because revocations are annotated in their

state-wide systems available to law enforcement, law enforcement could

know if someone presented a revoked permit.

While Georgia state law does not mandate retrieval of revoked permits, one of the select

counties reported sending sheriffs to serve revoked permit holders and seize the permits.

Florida issuing authority has been made aware of isolated instances when a suspended

license has been presented to law enforcement.

Page 29 GAO-12-717 Concealed Carry Permits

When encountering an individual with a concealed carry permit, such as

during a routine traffic stop, law enforcement officials in our 9 case study

states that issue permits told us that they visually inspect a permit to

verify its status to ensure it is valid and active.

They also have

mechanisms available to further validate the permit, as needed, such as

checking a permit against state databases or contacting state

dispatchers. Law enforcement in these states may take steps to confirm a

permit is valid and active if law enforcement knows a person has a permit

and determines a need to take this action. In Texas, permit holders are

required by law to present their permit when encountering law

enforcement and identification is requested.

In addition, in 5 of our case

study states (Arizona, Florida, Louisiana, Tennessee, and Virginia),

permit holders are required to produce a permit if law enforcement

demands it.

The extent to which law enforcement in states encounters permits would likely depend

upon the extent to which states issue permits and recognize other states’ permits. As

such, law enforcement in may-issue states that issue a lower number of permits relative to

their state population and do not recognize other states’ permits would be less likely to

encounter permits than law enforcement in shall-issue states. Further, law enforcement

officials in 9 of the states in our case study said that during the course of performing their

duties, they can become aware that an individual possesses a permit through various

means. For example, during a routine traffic stop, permit holders may inform law

enforcement officials that they have a firearm in their car and provide the officer a permit

along with their driver’s license.

For example, in 4 of these states (Louisiana, Tennessee,

Texas, and Virginia), law enforcement could become aware if an

individual had an active permit when running his or her driver’s license, as

permits in these states are linked to the driver’s license system. During

these checks, law enforcement in these states would also receive

information on whether the individual had a permit revoked. Permit

holders may also voluntarily present permits to law enforcement officials

immediately when being pulled over for a traffic stop regardless of state

requirements. While Tennessee law does not require permit holders to

present permits unless requested by law enforcement officers, according

to Tennessee issuing authority officials, firearms safety training required

Pursuant to Tex. Gov’t Code Ann. § 411.205, if a permit holder is carrying a handgun on

or about the person when a magistrate or a peace officer demands that the permit holder

display identification, the permit holder is required to display both the permit holder’s

driver’s license or identification certificate and the permit holder’s handgun permit.

There is no statutory requirement for California residents to declare firearms to law

enforcement upon a routine traffic stop. However, individual chiefs/sheriffs may require

such behavior as a condition of permit issuance.

Law Enforcement in

Select States Visually

Check Permits to

Verify Validity, among

Other Actions

Page 30 GAO-12-717 Concealed Carry Permits

for all Tennessee permit holders teaches them to do so when

encountering law enforcement.

Generally, law enforcement officials in all 9 case study states said that

when presented with a permit, they would visually inspect the permit to

verify that the permit was current and belonged to the individual. All of

these states have a standardized permit prescribed by state law, which

can make it easier for law enforcement to verify. Further, all of these

states’ permits contain the permit holders’ name, permit expiration date,

and unique permit number—this information assists law enforcement in

verifying whether a permit is current. As shown in table 5, the permits

have other physical features such as a photograph, the date of birth, or a

state seal or hologram, among others.

Table 5: Physical Characteristics of Case Study States’ Concealed Carry Permits

State

Arizona

California

Florida

Georgia

Louisiana

Maryland

Tennessee

Texas

Virginia

Permit holder’s name

X X X X X X X X X

Expiration date X X X X X X X X X

Permit number X X X X X X X X X

Height/Weight X X X X X X X X

Date of birth X X X X X X X

Issuing authority and contact

information

X X X X X X X

Issuance date X X X X X X X

Address X X X X X X

Photograph X X X X X X

State seal X X X X X X

Laminated X X X X X X

Hologram X X X X X

Driver’s license lumber X X X X

Race X X X X

Bar code X X X X

Sex X X X X X

Permit holder’s signature X X X

Other

X X X X

Source: GAO analysis of state reported data.

Virginia nonresident permit includes a photo and is laminated while the resident permit does not

have these features.

Other features may include hair color, eye color, magnetic strip, listing of firearms authorized to be

carried concealed, or fingerprint, among other things.

Law enforcement officials in all 9 case study states said they would not

routinely take additional steps to verify a permit beyond visual inspection

Page 31 GAO-12-717 Concealed Carry Permits

and verifying permit information in the driver’s license system in states

where permits are linked to such systems. These officials explained that

their top priorities during a traffic stop would be officer safety and the

reason for the stop (e.g., traffic violation). However, law enforcement in all

of these states has other means to further validate a permit as needed,

although some methods are easier to use than others. According to

issuing authority officials in Arizona, California, Florida, Louisiana,

Maryland, Tennessee, Texas, and Virginia, law enforcement within their

state can instantly access state databases, which have permit holders’

information, to validate the status of a permit as needed. In Florida, for

example, issuing authority officials said that they update all information

related to permit holders in the state’s criminal database nightly. The

Florida Department of Law Enforcement —which manages the

database—makes the information available to all law enforcement

agencies. Thus, a law enforcement officer in the field can obtain current

information on the status of a permit usually by contacting the officer’s

dispatcher, or in some Florida jurisdictions, law enforcement can obtain

current permit information from their vehicles’ on-board computer

systems. In Georgia and Maryland, law enforcement officers can call the

issuing authority to verify the status of resident permits. However, law

enforcement may not be able to instantly validate a permit because

permit issuing authorities generally operate during normal business hours

(Monday through Friday, between the hours of 8 a.m. to 5 p.m.).

In addition, law enforcement may have mechanisms to validate permits

issued by other states. As noted above, Louisiana, Tennessee, Texas, and

Virginia provide access to permit information when officers check these

driver’s licenses; consequently, this check can be used to validate permits

within their state or outside of their state. Further, an out-of-state law

enforcement agency can obtain current information on Florida-issued

permits by submitting an information request to the Florida Department of

Law Enforcement Customer Support Center. Additionally, Arizona, Florida,

Louisiana, Tennessee, Texas, and Virginia input permit information into the

International Justice and Public Safety Network (Nlets), an information-

sharing system available to all states’ law enforcement agencies. Nlets

provides users instant access to permit holder information, such as permit

status (i.e., whether the permit is valid, active, or revoked, etc.), and a

description of the permit holder. Submission of permit holder information

into Nlets is strictly voluntary for states that have a centralized state

database. Currently, approximately 20 states input permit information into

Nlets. States that do not have a centralized state database of permit

holders (e.g., Georgia) cannot make information available in Nlets. Law

enforcement in other states can also call select states’ dispatchers in

Page 32 GAO-12-717 Concealed Carry Permits

Florida and Maryland to validate permits issued by these states. To validate

a permit issued in California, officers from other states could call the

California Department of Justice, which collects permit information from the

issuing authorities throughout the state.

We provided portions of a draft of this report to state and local officials in

Arizona, California, Florida, Georgia, Louisiana, Maryland, Tennessee,

Texas, and Virginia. We did not obtain official comments from the

Department of Justice because we were not directly auditing its

programs. However to ensure the accuracy of the information in the

report that relates to the department provided, the department provided

technical comments, which we incorporated as appropriate.

We are sending copies of this report to the appropriate congressional

committees, the Attorney General of the United States; and other

interested parties. In addition, this report is available at no charge on the

GAO web site at: http://www.gao.gov.

If you or your staff members have any questions about this report please

contact Carol Cha at (202) 512-4456 or [email protected] or Eileen Larence

at (202) 512-6510 or l[email protected]. Contact points for our Offices of

Congressional Relations and Public Affairs may be found on the last page

of this report. GAO staff who made major contributions to this report are

listed in appendix VIII.

Carol R. Cha

Acting Director, Homeland Security and Justice Issues

Eileen R. Larence

Director, Homeland Security and Justice Issues

Appendix I: Case Study State Summaries

Page 33 GAO-12-717 Concealed Carry Permits

Approximate Number of Active Concealed Carry Permit Holders as

of December 31, 2011: 163,000 (rounded to the nearest thousand)

State Adult Population (age 20 or over) per U.S. 2010 Census:

4,572,376

Unlicensed Open Carry Permitted: Yes

Permit to Carry Concealed: Arizona significantly revised its weapons

permit laws in 2010. Arizona had allowed the open carrying of a weapon

without a permit prior to that time, but since 2010, Arizona has allowed

residents to carry a firearm open or concealed without a permit.

However, Arizona does issue concealed carry permits, which may be

used for purposes of reciprocity, and to carry in certain locations.

Length of Permit Validity: 5 years

Eligibility Requirements: The Arizona Department of Public Safety is

required to issue a permit to carry a concealed weapon to a person who

meets all of the following eligibility requirements:

1. is a resident of Arizona or a United States citizen (i.e., in-state and

out-of-state residents);

2. is 21 years of age or older;

3. is not under indictment for and has not been convicted in any

jurisdiction of a felony;

4. does not suffer from mental illness and has not been adjudicated

mentally incompetent or committed to a mental institution;

5. is not unlawfully present in the United States;

2010 Ariz. Sess. Laws ch. 59, § 2 (amending Ariz. Rev. Stat. §13-3102, which formerly

read, “A person commits misconduct involving weapons by knowingly: 1. Carrying a

deadly weapon without a permit pursuant to section 13–3112 except a pocket knife

concealed on his person; 2. Carrying a deadly weapon without a permit pursuant to

section 13–3112 concealed within immediate control of any person in or on a means of

transportation…”).

See Ariz. Rev. Stat. § 13-3112; § 4-244 (29)-(30) (premises that sell alcohol).

Ariz. Rev. Stat. § 13-3112(A).

Unless the conviction has been set aside in some way, or the applicant’s rights have

restored, and applicant is not a prohibited possessor under state or federal law.

Appendix I: Case Study State Summaries

Arizona Summary: Shall-

Issue State (Residents and

Nonresidents)

Appendix I: Case Study State Summaries

Page 34 GAO-12-717 Concealed Carry Permits

6. has ever demonstrated competence with a firearm (as described in

the training requirement section below) and provides adequate

documentation that the person has satisfactorily completed a training

program

a. adequate documentation means: a) a current or expired

Arizona permit; b) a certificate or affidavit of completion from

the conductor of the course; c) evidence of current military

service or proof of honorable discharge or general discharge

under honorable conditions from the United States armed

forces; d) a concealed weapon permit as described in the

training requirement section below.

Firearms Training Requirements: An applicant shall demonstrate

competence with a firearm through any of the following:

1. Completion of any firearms safety or training course or class that is

available to the general public; that is offered by a law enforcement

agency, a junior college, a college or a private or public institution,

academy, organization or firearms training school; and that is approved

by the Department of Public Safety or that uses instructors who are

certified by the National Rifle Association.

2. Completion of any hunter education or hunter safety course approved

by the Arizona game and fish department or a similar agency of another

state.

3. Completion of any National Rifle Association firearms safety or training

course.

4. Completion of any law enforcement firearms safety or training course

or class that is offered for security guards, investigators, special deputies,

or other divisions or subdivisions of law enforcement or security

enforcement and that is approved by the Department of Public Safety.

5. Evidence of current military service or proof of honorable discharge or

general discharge under honorable conditions from the United States

armed forces.

Ariz. Rev. Stat. § 13-3112(E).

Appendix I: Case Study State Summaries

Page 35 GAO-12-717 Concealed Carry Permits

6. A valid current or expired concealed weapon, firearm, or handgun

permit or license that is issued by another state or a political subdivision

of another state and that has a training or testing requirement for initial

issuance.

7. Completion of any governmental police agency firearms training course

and qualification to carry a firearm in the course of normal police duties.

8. Completion of any other firearms safety or training course or class that

is conducted by a Department of Public Safety-approved or National Rifle

Association-certified firearms instructor.

Factors State Considers in Granting Reciprocity: Arizona law requires

that the concealed weapon, firearm, or handgun permit or license issued

by another state or its political subdivision be recognized if the following

conditions are met:

1. the permit or license is recognized as valid in the issuing state;

2. the permit holder is legally present in Arizona;

3. the permit holder is not legally prohibited from possessing a firearm in

Arizona.

4. the permit holder is 21 years of age or older; and

5. the permit holder is not under indictment for, or been convicted of, a

felony offense in any jurisdiction (unless the conviction has been set

aside in some way, or the applicant’s rights have been restored, and

the permit holder is not a prohibited possessor under state or federal

law).

Revocation Process: The permit must be suspended or revoked if the

person no longer meets the eligibility requirements listed above. The

department must notify the permit holder in writing within 15 working days

of the revocation or suspension and state the reasons for the action.

Ariz. Rev. Stat. § 13-3112(N).

Arizona law also provides that if a person is arrested or indicted for an

offense that would disqualify him or her from obtaining a permit, or

Ariz. Rev. Stat. § 13-3112(Q).

Ariz. Rev. Stat. § 13-3112(S).

Ariz. Rev. Stat. § 13-3112(M).

Appendix I: Case Study State Summaries

Page 36 GAO-12-717 Concealed Carry Permits

prohibited from possessing a weapon under state law,

the permit is

required to be immediately suspended and seized.

The permit is to be

restored if the permittee is found not guilty or the charges are

dismissed.

Permits may also be suspended when permittees do not

present their permit at the request of law enforcement.

Mechanism Available for Law Enforcement Officers within and

outside the State to Verify the Validity of Permits Issued in This

State:

Law enforcement officials in Arizona, and in states that participate in the

International Justice and Public Safety Network (Nlets), can run a

Concealed Weapons Query through the system. Law enforcement

officials in states that do not participate in Nlets can call dispatch at the

Arizona Department of Public Safety.

Approximate Number of Active Concealed Carry Permit Holders as

of September 1, 2011: 35,000 (rounded to the nearest thousand)

State Adult Population (age 20 or over) per U.S. 2010 Census:

26,801,914

Unlicensed Open Carry Permitted: No

Permit to Carry Concealed: California law provides license-issuing

authority to various officials:

• a sheriff of a county;

Under Ariz. Rev. Stat. § 13-3101(A)(7), this includes a person who has been found to

constitute a danger to himself or others, who has been convicted of a felony, who is

serving a term of imprisonment or probation, or is an undocumented alien, among other

things.

Ariz. Rev. Stat. § 13-3112(B).

Ariz. Rev. Stat. § 13-3112(C).

Cal. Penal Code § 26150(b).

California Summary: May-

Issue State (Residents)

Appendix I: Case Study State Summaries

Page 37 GAO-12-717 Concealed Carry Permits

• the chief or other head of a municipal police department of any city, or

city and county.

The issuing authority may issue one or two forms of concealed carry

license:

• a license to carry a firearm capable of being concealed on the person;

• in a county of less than 200,000, a license to carry, only in that

county, a loaded and exposed firearm capable of being concealed

upon the person.

The issuing authority may include any reasonable restrictions or

conditions that the issuing authority deems warranted, including

restrictions as to the time, place, manner, and circumstances under which

the person may carry the concealed firearm.

These restrictions are to be

indicated on the permit.

Length of Permit Validity: The license is generally valid for a period not

to exceed 2 years.

For peace officers, it is 4 years.

For judges, it is 3

years.

Eligibility Requirements: The license may be issued if the following

conditions are met:

1. the person applying is of good moral character;

2. good cause exists for the issuance;

3. the applicant is a resident of the county or city within the county;

4. the applicant has completed a course of training; and

Cal. Penal Code § 26155(a).

Cal. Penal Code §§ 26150(b), 26155(b).

Cal. Penal Code § 26200(a).

Cal. Penal Code § 26200(b).

Cal. Penal Code § 26220(a).

Cal. Penal Code § 26220(e).

Cal .Penal Code § 26220(c).

Appendix I: Case Study State Summaries

Page 38 GAO-12-717 Concealed Carry Permits

5. The California Department of Justice (CA DOJ) has determined that

the person is not prohibited by state or federal law from possessing,

receiving, owning, or purchasing a firearm.

Firearms Training Requirements: Applicant must complete a firearms

safety training course:

a. For new applicants, the course must be acceptable to the

licensing authority, not be longer than 16 hours, and must include

instruction on at least firearm safety and the law regarding the

permissible use of a firearm.

b. For renewal applicants, the course must be acceptable to the

licensing authority, be at least 4 hours, and must include

instruction on at least firearm safety and the law regarding the

permissible use of a firearm.

Factors State Considers in Granting Reciprocity: California does not

recognize concealed carry permits from other states.

Revocation Process: The license must be revoked by the local licensing

authority if it has either been notified by the CA DOJ or determines that

the person is prohibited by California or federal law from possessing,

receiving, owning, or purchasing a firearm.

Correspondingly, if the CA

DOJ determines that the licensee is subject to any of these prohibitions, it

must notify the local licensing authority.

If the licensing authority revokes

the license, the CA DOJ must be notified of the revocation immediately.

The licensee must also be immediately notified of the revocation in

writing.

Cal. Penal Code § 26195(a).

Cal. Penal Code §26165. The licensing authority may require a community college

course certified by the Commission on Peace Officer Standards and Training, up to a

maximum of 24 hours, but only if required uniformly of all license applicants without

exception.

Cal. Penal Code § 26195(b)(1).

Cal. Penal Code § 26195(b)(2).

Cal. Penal Code § 26195(b)(3).

Appendix I: Case Study State Summaries

Page 39 GAO-12-717 Concealed Carry Permits

If a person moves from his or her original county of residence, the license

will expire 90 days after the move.

If the license was to carry a loaded

and exposed firearm, the license will be revoked immediately when the

licensee changes his or her place of residence.

Mechanism Available for Law Enforcement Officers within and

outside the State to Verify the Validity of Permits Issued in This

State:

California law enforcement uses local law enforcement and the CA DOJ

databases to verify the validity of permits; for example:

• A California police department enters all concealed carry permit

information into the Police Department Records Management System

which is linked to COPLINK (a computer system that accepts

information from all law enforcement agencies that are linked into

COPLINK). Other law enforcement entities that are linked into

COPLINK can get concealed carry permit information.

• Another police department stated that it can check its database or CA

DOJ databases to verify the status of a concealed carry holder’s

permit.

Approximate Number of Active Concealed Carry Permit Holders as

of December 31, 2011: 887,000 (rounded to the nearest thousand)

State Adult Population (age 20 or over) per U.S. 2010 Census:

14,288,320

Unlicensed Open Carry Permitted: No

Permit to Carry Concealed: Yes. Under Florida law, it is a crime to carry

a concealed firearm without having a license to carry.

Cal. Penal Code § 26210(d).

Cal. Penal Code § 26210(e).

Fla. Stat. Ann § 790.01.

Florida Summary: Shall-

Issue State (Residents and

Nonresidents)

Appendix I: Case Study State Summaries

Page 40 GAO-12-717 Concealed Carry Permits

Length of Permit Validity: Licenses are valid for 7 years from the date of

issuance.

Eligibility Requirements: The Department of Agriculture and Consumer

Services is required to issue a license when the applicant meets the

following requirements:

1. General:

a. Is a resident of the United States or permanent resident alien, in

certain circumstances, a foreign government official;

b. Is 21 years of age or older;

c. Does not suffer from a physical infirmity that prevents the safe

handling of a firearm;

d. Desires a legal means to carry a concealed firearm for lawful self-

defense;

2. Criminal History Information:

a. Is not ineligible to possess a firearm by virtue of a felony

conviction;

b. Is not prohibited from purchasing or possessing a firearm by any

other provision of Florida or federal laws.

c. Has not had adjudication of guilt withheld or imposition of

sentence suspended on any felony or misdemeanor crime of

domestic violence unless 3 years have elapsed since probation or

any other conditions set by the court have been fulfilled, or the

record has been sealed or expunged;

d. Has not been issued an injunction that is currently in force and

effect and that restrains the applicant from committing acts of

domestic violence or acts of repeat violence;

e. Licenses must be denied if the applicant has been found guilty of,

had adjudication of guilt withheld for, or had imposition of

sentence suspended for one or more crimes of violence

constituting a misdemeanor, unless 3 years have elapsed since

probation or any other conditions set by the court have been

fulfilled or the record has been sealed or expunged.

Fla. Stat. Ann § 790.06(1).

If the

Fla. Stat. Ann § 790.06(2).

Fla. Stat. Ann § 790.06(3).

Appendix I: Case Study State Summaries

Page 41 GAO-12-717 Concealed Carry Permits

applicant is charged with a disqualifying crime or injunction related

to domestic violence during the processing, the processing must

be suspended pending final disposition.

1. Substance Abuse and Mental Health Information

a. Has not been committed for the abuse of a controlled substance

or been found guilty under Florida’s drug laws or similar laws of

another state within 3 years prior to the application submission;

b. Does not chronically and habitually use alcoholic beverages or

other substances to the extent that his or her normal faculties are

impaired;

c. Has not been adjudicated an incapacitated person under Florida

law or similar laws or another state unless 5 years have elapsed

since the applicant’s restoration to capacity by court order;

d. Has not been committed to a mental institution under Florida law

or similar laws of another state, unless the applicant produces a

certificate from a licensed psychiatrist that the applicant has not

suffered from the disability for at least 5 years prior to the date of

submission.

Firearms Training Requirements: The Department of Agriculture and

Consumer Services is required to issue a license when the applicant:

• Demonstrates competence with a firearm by completion of an

approved class, such as one offered by the National Rifle Association,

a certified instructor, or law enforcement, or through evidence of

experience through the military service, among other things.

Factors State Considers in Granting Reciprocity: Florida will grant

reciprocity to only those states that honor its concealed weapons permit.

Revocation or Suspension Process: Licenses must be revoked if the

licensee has been found guilty of a crime of violence within the preceding

Fla. Stat. Ann § 790.06(3).

This will be presumed where in the 3 years immediately preceding the application, the

applicant has been committed for substance abuse treatment under Florida law, has been

convicted as a habitual offender of disorderly intoxication, or has two or more convictions

of driving under the influence or similar state law.

Fla. Stat. Ann § 790.06(2).

Appendix I: Case Study State Summaries

Page 42 GAO-12-717 Concealed Carry Permits

3 years.

Once the department has been notified by a law enforcement

agency, court, or the Florida Department of Law Enforcement that an

applicant or licensee has been arrested or formally charged for a

disqualifying crime, or an injunction related to domestic violence, the

department must obtain written verification and then must suspend the

license.

Florida also provides suspension and revocation authority to the

department if a licensee becomes ineligible due to the previously outlined

physical, mental health or criminal disqualifications.

Mechanism Available for Law Enforcement Officer’s within and

outside the State to Verify the Validity of Permits Issued in this

State:

Law enforcement (in-state and out-of-state) can check the validity of a

Florida permit through the Florida Department of Law Enforcement’s

database.

Approximate Number of Active Concealed Carry Permit Holders as

of December 31, 2011: 600,000 (rounded to the nearest thousand)

State Adult Population (age 20 or over) per US 2010 Census:

6,906,024

Unlicensed Open Carry Permitted: No

Permit to Carry Concealed: Georgia law allows an individual to carry a

weapon in a concealed or open manner—in the person’s home, car, or

place of business.

Length of Permit Validity: License valid for 5 years

Eligibility Requirements: The judge of the probate court of each county

has the authority to issue a weapons carry license or renewal license for

a 5-year period, which allows the person to carry any weapon in any

Includes where the holder had an adjudication of guilt withheld or had the imposition of

sentence suspended.

Fla. Stat. Ann § 790.06(3).

Fla. Stat. Ann § 790.06(10).

Georgia Summary: Shall-

Issue State (Residents)

Appendix I: Case Study State Summaries

Page 43 GAO-12-717 Concealed Carry Permits

county.

1. is domiciled in that county.

An applicant is eligible for a license to carry a concealed

handgun if the person:

2. is at least 21 years of age.

This also includes non-citizens, who

provide certain identifying information.

Criminal history

3. has not been convicted

4. does not have felony proceedings pending against the person;

of a felony by any court (unless pardoned);

5. is not a fugitive from justice;

6. is not federally prohibited from possessing or shipping a firearm;

7. has not been convicted of the offense of unlawful manufacture or

distribution of a controlled substance or other dangerous drug;

8. has not had his or her weapons carry license revoked;

9. has not been convicted of specified weapons-related offenses, such

as carrying a weapon without a license, unless it has been 5 years

since any related restraint or supervision or other conviction; and

10. has not been convicted of a drug-related offense and is not subject to

related restraint and supervision, a second drug related conviction, or

a conviction related to (6)–(8) above, in the 5 years prior to the date of

application.

Ga. Code Ann. § 16-11-129(a). This language provides that the judge “may” issue a

permit; however, Ga. Code. Ann. 16-11-129(d)(4) requires the judge to issue the permit if

certain eligibility requirements are met. A 1989 opinion by the Georgia Attorney General

clarifies that the judge does not have discretion to deny a permit if the eligibility

requirements are met, other than the “good moral character” determination1989 Op. Atty

Gen. Ga. 188; 1989 Ga. AG LEXIS 64.

May also provide licenses to military personnel. Ga. Code Ann. §16-11-129(a).

Ga. Code Ann. § 16-11-129(b)(2)(A).

Convicted includes a plea of guilty or a finding of guilt by a court of competent

jurisdiction or the acceptance of a plea of nolo contendere, irrespective of the pendency or

availability of an appeal or an application for collateral relief. Ga. Code Ann. § 16-11-

129(b)(1)(B).

Unless it was first offender treatment without adjudication of guilt for a conviction and

such sentence was successfully completed and the person has not had any other

conviction since the completion of such sentence and for at least five years prior to the

application. Ga. Code Ann. § 16-11-129(b)(3).

Ga. Code Ann. § 16-11-129(b)(2)(H).

Appendix I: Case Study State Summaries

Page 44 GAO-12-717 Concealed Carry Permits

Mental Health and Substance Abuse

11. Has not been hospitalized as an inpatient in any mental hospital or

alcohol or drug treatment center within the 5 years immediately

preceding the application; however, the judge has discretion to issue

the weapons carry license or renewal license, considering the

circumstances surrounding the hospitalization and the

recommendation of the superintendent of the hospital or treatment

center where the individual was a patient.

Firearms Training Requirements: Not Required

Factors State Considers in Granting Reciprocity: Georgia law

provides that an out-of-state resident who is licensed to carry a weapon in

a state whose laws recognize Georgia licenses can carry a weapon in

Georgia. The license holder must follow Georgia law in carrying the

weapon.

Other states’ permits are not valid for Georgia residents.

Revocation Process: If the judge learns or has brought to his or her

attention any reasonable ground to believe that the licensee is not eligible

to have the license, after notice and hearing, the judge may revoke the

license.

The judge must find that the person does not meet the weapons

carry license eligibility requirements, has falsified the application, is

mentally incompetent, or chronically uses alcohol or narcotics.

Possession of a revoked license is a misdemeanor offense.

Mechanism Available for Law Enforcement Officers within and

outside the State to Verify the Validity of Permits Issued in This

State:

Ga. Code Ann. § 16-11-129(b)(2)(J).

Ga. Code Ann. § 16-11-126(e).

Ga. Code Ann. § 16-11-129(e).

Appendix I: Case Study State Summaries

Page 45 GAO-12-717 Concealed Carry Permits

Law enforcement officers within and outside of the state can call the

issuing probate court during normal business hours to verify the validity of

permits. Some probate courts require documentation or other proof that

the person requesting is a member of law enforcement (a faxed request

on letterhead, or an in-person request by a uniformed officer with a proper

identification such as a badge).

Approximate Number of Active Concealed Carry Permit Holders as

of December 31, 2011: 40,000 (rounded to the nearest thousand)

State Adult Population (age 20 or over) per U.S. 2010 Census:

3,279,135

Unlicensed Open Carry Permitted: Yes

Permit to Carry Concealed: The Deputy Secretary of Public Safety

Services of the Department of Public Safety and Corrections is required

to issue a concealed handgun permit to any Louisiana resident who

qualifies for a permit under the Louisiana permit eligibility provisions.

Length of Permit Validity: 5 years.

Eligibility Requirements: Permits can be issued only to Louisiana

residents who qualify.

1. Include any training in pistols or revolvers on the application;

Applicants must make a sworn application to the

Deputy Secretary of Public Safety Services of the Department of Public

Safety and Corrections. Any false or misleading information provided is

grounds for the denial or revocation of a permit. As part of the application,

the applicant must:

2. be a resident of the state and not be an illegal alien; and

3. be 21 years of age or older.

4. Criminal history:

La. Rev. Stat. Ann. § 40:1379.3(A)(1).

La. Rev. Stat. Ann. § 40:1379.3(H)(2).

La. Rev. Stat. Ann. § 40:1379.3(B).

Louisiana Summary: Shall-

Issue State (Residents)

Appendix I: Case Study State Summaries

Page 46 GAO-12-717 Concealed Carry Permits

a. not be ineligible to possess a firearm by virtue of having been

convicted of a felony;

b. not have been convicted of a crime of violence at the

misdemeanor level, unless 5 years have elapsed since the

completion of any sentence or conditions set by the court. Or

unless the conviction was set aside and the prosecution

dismissed, prior to the date on which the application is submitted;

c. not have been convicted of or charged with any crime of violence

or any crime punishable for a term of imprisonment of greater than

1 year;

d. not have a history of engaging in violent behavior;

e. not be ineligible to possess a firearm under federal law; and

f. not be a fugitive from justice.

5. Mental health information:

a. not suffer from a mental or physical infirmity due to disease,

illness, or retardation that prevents the safe handling of a

handgun;

b. not have been committed, either voluntarily or involuntarily, for the

abuse of a controlled dangerous substance or have been

convicted of a misdemeanor relating to a controlled dangerous

substance within the last 5 years, or be currently charged with

such an offense;

c. not chronically and habitually use alcoholic beverages to the

extent that his normal faculties are impaired;

d. not be an unlawful user of, or addicted to, marijuana, depressants,

stimulants, or narcotic drugs; and

e. not have been adjudicated to be mentally deficient or been

committed to a mental institution;

This includes even where the conviction has been set aside or expunged, except for

individuals convicted under 18 U.S.C. § 491(a), who shall be permitted to qualify for a

concealed handgun permit if 15 or more years has elapsed between the date of

application and the successful completion or service of any sentence, deferred

adjudication, or period of probation or parole.

There is a rebuttable presumption that an applicant has a history of engaging in violent

behavior upon proof that, within a 10-year period immediately preceding the date of the

application, the applicant has been arrested or charged on three or more occasions for

any crime of violence, or has been arrested or charged on two or more occasions for any

crime of violence that may be punished by death.

This will be assumed if the applicant has been convicted of operating a vehicle while

intoxicated, or has been admitted, either voluntarily or involuntarily, for treatment as an

alcoholic, within the last 5 years, or at any time after the application has been submitted.

Appendix I: Case Study State Summaries

Page 47 GAO-12-717 Concealed Carry Permits

6. not have been discharged from the U.S. armed forces under certain

circumstances (e.g., dishonorable discharge).

7. Prior permit applications:

a. not have had a permit denied within 1-year prior to the most

recent application; and

b. not have a permit revoked within 4 years prior to the most recent

application.

8. demonstrate competence with a handgun.

Firearms Training Requirements: Upon application to the department

for a permit, all applicants shall demonstrate competence with a handgun

by any one of the following:

a. completion of any Department of Public Safety and Corrections-

approved firearms safety or training course that shall include at

least a minimum of 9 hours of instruction as detailed below:

i. one hour of instruction on handgun nomenclature and safe

handling procedures of a revolver and semi-automatic pistol;

ii. one hour of instruction on ammunition knowledge and

fundamentals of pistol shooting;

iii. one hour of instruction on handgun shooting positions;

iv. three hours of instruction on the use of deadly force and

conflict resolution that will include a review of La. Rev. Stat.

Ann. §§14:18 through 14:22 and which may include a review

of any other laws relating to the use of deadly force;

v. one hour of instruction on child access prevention; and

vi. two hours of actual live range fire and proper handgun

cleaning procedures:

1. live range fire shall include 12 rounds each at 6 feet, 10

feet, and 15 feet for a total of 36 rounds;

2. each applicant or permittee must perform at least one safe

reload of the handgun at each distance;

3. each applicant or permittee must score 100 percent hits

within the silhouette portion of a National Rifle Association

(NRA) B-27-type silhouette target with at least 36 rounds;

La. Rev. Stat. Ann. § 40:1379.3(C). The applicant must also agree in writing to hold

harmless and indemnify the department, the state, or any peace officer for any and all

liability arising out of the issuance or use of the concealed handgun permit;

Appendix I: Case Study State Summaries

Page 48 GAO-12-717 Concealed Carry Permits

b. completion of the NRA personal protection course including

instruction in child access prevention conducted by a NRA

certified instructor;

c. completion of the NRA basic pistol shooting course including

instruction in child access prevention conducted by a NRA

certified instructor;

d. completion of a firearms training course approved by the

Louisiana State Board of Private Security Examiners, in

accordance with La. Rev. Stat. Ann. § 37:3284 et seq., including

instruction in child access prevention;

e. possession of a current valid license or permit to carry a

concealed handgun issued by a parish law enforcement officer;

f. completion of a law enforcement training academy program

certified by the Council on Peace Officer Standards and Training;

g. proof of completion of small arms training while serving with the

armed forces of The United States of America as described in La.

Rev. Stat. Ann. § 40:1379.3(D)(1).

Factors State Considers in Granting Reciprocity: While Louisiana law

recognizes the validity of out-of-state permits when carried by out-of-state

residents, it does not allow Louisiana residents to obtain permits from

other states for the purpose of carrying a concealed weapon in Louisiana.

The permits of out-of-state residents are valid in Louisiana in the following

circumstances:

1. The permit is current and valid;

2. the permit holder is at least 21 years of age; and

3. the state in which the permit was issued recognizes permits issued by

Louisiana.

Louisiana residents may not use permits issued by another state for the

purpose of authorizing the carrying of a concealed weapon in Louisiana.

La. Rev. Stat. Ann. § 40:1379.3(D).

La. Rev. Stat. Ann. § 40:1379.3(T)(2).

Appendix I: Case Study State Summaries

Page 49 GAO-12-717 Concealed Carry Permits

The Deputy Secretary for Public Safety Services is authorized to enter

into reciprocity agreements with other states so that full-time active peace

officers commissioned in another state have the same authority as a

person issued a concealed handgun permit to carry a concealed handgun

while in Louisiana, regardless of whether or not they are in the official

discharge of their duties.

Revocation Process: A permit is to be revoked if the permittee fails to

satisfy any of the qualification requirements.

Permit holders are prohibited from carrying a weapon while under the

influence of alcohol or a controlled dangerous substance; the permit is

considered automatically suspended and is not valid.

The department

is required to revoke the permit where the holder has carried the weapon

in these circumstances, refuses to submit to a chemical test, or where the

holder commits negligent carrying of a concealed handgun.

Permit holders are required to make law enforcement officers aware that

the holder has a weapon and the permit is to be revoked for violation of

this requirement.

Whenever a peace officer determines that grounds under exist for the

revocation of a concealed handgun permit, the officer is to prepare an

affidavit indicating the reasons for the revocation and all other available

information regarding the revocation. A copy of the peace officer’s report

relating to the incident must be attached to the affidavit when submitted to

the department.

La. Rev. Stat. Ann. § 40:1379.3(T).

La. Rev. Stat. Ann. § 40:1379.3(F).

La. Rev. Stat. Ann. § 40:1379.3(F), (I).

La. Rev. Stat. Ann. § 40:1379.3(I)(2).

La. Rev. Stat. Ann. § 40:1379.3(I)(5).

Appendix I: Case Study State Summaries

Page 50 GAO-12-717 Concealed Carry Permits

Mechanism Available for Law Enforcement Officers within and

outside the State to Verify the Validity of Permits Issued in This

State:

Law enforcement officers can access concealed carry permit status when

checking a Louisiana resident’s driver’s license.

Approximate Number of Active Concealed Carry Permit Holders as

of October 1, 2011: 12,000 (rounded to the nearest thousand)

State Adult Population (age 20 or over) per U.S. 2010 Census:

4,256,926

Unlicensed Open Carry Permitted: Maryland state law requires a

person to have a permit issued “before the person carries, wears, or

transports a handgun.”

The person must have the permit in his or her

possession whenever carrying, wearing, or transporting a handgun.

Permit to Carry Concealed: A permit is to be issued to a person when

the Secretary of the Maryland State Police finds that the applicant meets

specific eligibility requirements.

Length of Permit Validity: Permits expire on the last day of the holder’s

birth month following 2 years after the date the permit is issued and may

be renewed for successive 3-year periods.

Eligibility Requirements: A permit is to be issued to a person when the

Secretary of the Maryland State Police finds that the applicant:

1. is an adult;

2. has not been convicted of a felony or of a misdemeanor for which a

sentence of imprisonment of more than 1 year has been imposed;

Md. Code Ann., Pub. Safety, § 5-303; Md. Code. Ann., Crim., § 4-203(a).

Md. Code Ann., Pub. Safety, § 5-308.

Md. Code Ann., Pub. Safety, § 5-309.

Unless the person is pardoned or granted other relief by the Attorney General.

Maryland Summary: May-

Issue State (Residents and

Nonresidents)

Appendix I: Case Study State Summaries

Page 51 GAO-12-717 Concealed Carry Permits

3. has not been convicted or a crime involving the possession, use, or

distribution of a controlled dangerous substance;

4. is not presently an alcoholic, addict, or habitual user of a controlled

dangerous substance, unless under legitimate medical direction;

5. based on an investigation, has not exhibited a propensity for violence

or instability that may reasonably render the person’s possession of a

handgun a danger to the person or to another; and

6. based on an investigation, has good and substantial reason to wear,

carry, or transport a handgun, such as a finding that the permit is

necessary as a reasonable precaution against apprehended danger.

When an applicant is under 30 years of age, the Secretary must

additionally find that the applicant has not been:

1. committed to a juvenile facility for longer than 1 year after an

adjudication of delinquency by a juvenile court; or

2. adjudicated delinquent by a juvenile court for an act that if committed

by an adult would be a crime of violence, a felony under Maryland

law, or a misdemeanor under Maryland law that carries a statutory

penalty of more than 2 years.

These requirements are in addition to those enumerated in Maryland law

to legally possess a firearm.

Firearms Training Requirements: Maryland does not require handgun

safety training for residents wishing to obtain a concealed handgun permit

for specific purposes of personal protection.

Factors State Considers in Granting Reciprocity: Maryland does not

recognize other states’ concealed carry handgun permits with the

Md. Code Ann., Pub. Safety, § 5-306(a). ). However, the United States District Court for

the District of Maryland held in Woollard v. Sheridan, Civil Case No. L-10-2068, 2012 WL

695674 (Mar. 2, 2012) that Maryland’s requirement of a “good and substantial reason” for

issuance of a handgun permit is insufficiently tailored to the State’s interest in public safety

and crime prevention and therefore this portion of the Maryland law is unconstitutional

because it impermissibly infringes upon the right to keep and bear arms as guaranteed by

the Second Amendment. The State of Maryland has filed a timely appeal of this ruling.

Md. Code Ann., Pub. Safety, § 5-306(b).

See Md. Code Ann., Pub. Safety, § 5-133.

Appendix I: Case Study State Summaries

Page 52 GAO-12-717 Concealed Carry Permits

exception of other states’ armored car personnel who possess a valid

permit who are on duty in Maryland.

Revocation Process: The Secretary may revoke the permit after finding

that the holder does not meet the permit application requirements listed

above, or did not have the permit in the person’s possession when

carrying, wearing, or transporting a handgun.

The failure to return a

revoked permit is a misdemeanor offense, subject to the imprisonment of

up to 1 year, and/or a fine between $100 and $1,000.

A permit holder is

prohibited from wearing, carrying, or transporting a handgun while under

the influence of alcohol or drugs, and doing so may result in a

misdemeanor violation subject to 1 year of imprisonment and/or a fine of

up to $1,000.

Mechanism Available for Law Enforcement Officers within and

outside the State to Verify the Validity of Permits Issued in This

State:

Law enforcement officers within Maryland can check the Maryland

Automated Firearms Services System to verify the validity of concealed

carry weapons permits. Law enforcement officers from other states can

call the Licensing Division of the Maryland State Police during normal

business hours to verify the validity of permits.

Approximate Number of Active Concealed Carry Permit Holders as

of January 3, 2012: 341,000 (rounded to the nearest thousand)

State Adult Population (age 20 or over) per U.S. 2010 Census:

4,669,984

Unlicensed Open Carry Permitted: No

Md. Code Ann., Pub. Safety, § 5-310.

Md. Code Ann., Pub. Safety, § 5-313.

Md. Code Ann., Pub. Safety, § 5-314.

Tennessee Summary: Shall-

Issue State (Residents and

Nonresidents)

Appendix I: Case Study State Summaries

Page 53 GAO-12-717 Concealed Carry Permits

Permit to Carry Concealed: Permit holders do not have to carry

handguns in a concealed manner.

Length of Permit Validity: Permits are generally valid for 4 years.

Eligibility Requirements: The following are eligibility requirements for a

permit, and the applicant must provide information about them on the

application under oath.

1. be a resident of Tennessee;

In addition to being eligible to purchase or

possess a handgun under state and federal law, the applicant must:

2. have United States citizenship or be a permanent lawful resident; and

3. be at least 21 years of age.

1. Identifying information:

a. full legal name and any aliases;

b. addresses for the last 5 years;

c. date of birth;

d. Social Security number;

e. physical description (height, weight, race, sex, hair color

and eye color);

2. Criminal History Information:

a. that the applicant has not been convicted of or currently

charged with a criminal offense that is designated as a

felony,

or that is one of the disqualifying

misdemeanors;

Tenn. Att’y Gen. Op. 05-154.

Tenn. Code Ann. § 39-17-1351(n).

Tenn. Code Ann. § 39-17-1351(c).

A resident is someone who has lived in Tennessee for more than 30 days, is employed

in the state, would qualify as registered voter, or has taken action to establish the state as

his or her principal place of domicile. Tenn. Code Ann. § 55-50-102(47).

Tenn. Code Ann. § 39-17-1351(b).

Disqualifying felonies do not include those pertaining to antitrust violations, unfair trade

practices, restraints of trade, or similar offenses related to the regulation of business

practices.

Disqualifying misdemeanors include driving under the influence, in Tennessee or

another state, 2 or more times in the past 10 years or in the past 5 years; crimes of

domestic violence; and stalking.

Appendix I: Case Study State Summaries

Page 54 GAO-12-717 Concealed Carry Permits

b. that the applicant is not currently subject to any order of

protection and, if so, the applicant must provide a copy of

the order; and

c. that the applicant is not a fugitive from justice;

3. Substance Abuse and Mental Health Information:

a. that the applicant is not an unlawful user of or addicted to

alcohol or any controlled substance, and the applicant has

not been a patient in a rehabilitation program or

hospitalized for alcohol or controlled substance abuse or

addiction within 10 years from the date of application;

b. that the applicant has not been adjudicated as a mental

defective; has not been judicially committed to or

hospitalized in a mental institution;

c. that the applicant is not receiving Social Security disability

benefits by reason of alcohol dependence, drug

dependence, or mental disability;

has not had a court

appoint a conservator for the applicant by reason of a

mental defect; has not been judicially determined to be

disabled by reason of mental illness, developmental

disability, or other mental incapacity; and has not, within 7

years from the date of application, been found by a court to

pose an immediate substantial likelihood of serious harm

because of mental illness; and

1. that the applicant is not an alien and is not illegally or

unlawfully in the United States;

2. that the applicant has not renounced the applicant’s United

States citizenship; and

3. that the applicant has not been discharged from the armed

forces under dishonorable conditions.

The applicant must also provide two sets of classifiable fingerprints and

must be photographed for the permit.

The applicant must present photo

identification to the department when filing the application; the name and

photo must match those of the application.

Under Tennessee’s procedures for involuntary commitment.

Tenn. Code Ann. § 39-17-1351(c).

Tenn. Code Ann. § 39-17-1351(d)(1).

Tenn. Code Ann. § 39-17-1351(d)(2).

Appendix I: Case Study State Summaries

Page 55 GAO-12-717 Concealed Carry Permits

Firearms Training Requirements: The department must require

applicants to provide proof of successful completion of an approved

handgun safety course. The course must include both classroom hours

and firing range hours, as well as instruction on alcohol and drugs; the

effects of those substances on a person’s reflexes, judgment, and ability

to handle a firearm; and laws related to possession of a firearm while

intoxicated.

An applicant may be exempt from the firing range and classroom hours

requirements if, within the past 5 years, the applicant completed training

or had been certified related to being a law enforcement officer, security

guard, or in the military.

Once a permit has been obtained, permit holders cannot be required to

complete a handgun safety course to maintain or renew a permit.

Factors State Considers in Granting Reciprocity: An out-of-state

permit is valid in Tennessee to carry a handgun, and the holder must

carry the permit at all times the person carries a handgun in Tennessee.

Tennessee law requires the Commissioner of Safety to enter into

reciprocity agreements with other states that require the execution of

such agreements. The Commissioner is to publish a list of the states that

honor the permits of Tennessee, as well as a list of the states that refuse

to enter into reciprocity agreements with the state, or honor Tennessee

handgun carry permits. If another state imposes conditions on Tennessee

permit holder in a reciprocity agreement, the conditions will apply to the

other state’s permit holder when they carry a handgun in Tennessee.

Persons who move to Tennessee: If a person with a handgun permit from

another state decides to become a resident of Tennessee, the person

must obtain a Tennessee handgun permit within 6 months. If the state the

person moved from has substantially similar permit eligibility

requirements, the permit may be issued based on the fact that the person

Tenn. Code Ann. § 39-17-1351(e).

Tenn. Code Ann. § 39-17-1351(m)

Tenn. Code Ann. § 39-17-1351(r)(1)-(2).

Tenn. Code Ann. § 39-17-1351(r)(3).

Appendix I: Case Study State Summaries

Page 56 GAO-12-717 Concealed Carry Permits

already has a permit. If the permit application is denied in Tennessee,

that person cannot carry a handgun based on the former state’s permit.

Persons who work in Tennessee: If a person is a resident and a permit

holder of another state, but is employed in Tennessee and wants to carry

a handgun in Tennessee, once the person has been working in

Tennessee for 6 months, the person has 6 months to obtain a Tennessee

handgun permit. If the state the person has a permit from has

substantially similar permit eligibility requirements, the permit may be

issued based on the fact that the person already has a permit. If the

application for a permit is denied in Tennessee, that person cannot carry

a handgun based on the former state’s permit. These provisions do not

apply if the state of residence of the person employed has a reciprocity

agreement with Tennessee.

Revocation Process: The department is required to suspend or revoke a

handgun permit when its records or other evidence show that the holder:

1. is prohibited from purchasing a handgun under applicable state or

federal law;

2. has not accurately disclosed material information required for

permit eligibility;

3. poses a material likelihood of risk of harm to the public;

4. has been arrested for a felony that involves the use or attempted

use of force, violence, or a deadly weapon, or for a felony drug

offense;

5. has been convicted of a felony;

6. has violated any provision of the Tennessee code related to

weapons permits;

7. has engaged in conduct that would make the holder ineligible to

apply for or obtain a permit under the permit eligibility

requirements;

8. has been convicted of domestic assault or other misdemeanor

crime of domestic violence and is still subject to the disabilities of

such a conviction;

9. is subject to a current order of protection; or

10. has been judicially committed to a mental institution or adjudicated

as a mental defective.

Tenn. Code Ann. § 39-17-1352(a).

Appendix I: Case Study State Summaries

Page 57 GAO-12-717 Concealed Carry Permits

Once the department suspends or revokes a permit, the department is

required to send notice to the holder and appropriate law enforcement

officers. In addition to stating that the permit has been suspended or

revoked, the notice must tell the holder to surrender the permit within 10

days and that it is a crime not to do so, and that the permit holder has 30

days to request a hearing, among other things.

The permit holder has 10 days to surrender the permit once the holder

has notice it has been surrendered or revoked. Failure to do so is a Class

A misdemeanor.

The permit holder has a right to have the suspension or revocation

reviewed in court.

If the holder has been arrested and charged with

certain felony offenses, including a felony offense involving violence or

the use of a firearm, the court with jurisdiction over the criminal charge is

required to find out if the defendant has a permit and order the surrender

of the permit. On other felony charges, the permit holder can petition for a

hearing to keep the permit and may retain the permit if the court

determines that the permit holder will not present a material risk of

physical harm to the public if released and allowed to retain the permit. If

the holder is acquitted of charges, the permit is restored; if the holder is

convicted, the permit is revoked. Permits are suspended during pre-trial

diversion or judicial diversion.

Permit holders must also surrender their

permits if convicted of a Class A misdemeanor for the term of the

sentence imposed.

Permit holders who have received a notice of

suspension or revocation may make a written request for review of the

determination at a hearing. The hearing must be scheduled within 30

days.

After this determination, there is a right of review in court.

Tenn. Code Ann. § 39-17-1352(c).

Tenn. Code Ann. § 39-17-1352(b).

Tenn. Code Ann. § 39-17-1352(d).

Tenn. Code Ann. § 39-17-1352(e).

Tenn. Code Ann. § 39-17-1352(f).

Tenn. Code Ann. § 39-17-1353.

Tenn. Code Ann. § 39-17-1354.

Appendix I: Case Study State Summaries

Page 58 GAO-12-717 Concealed Carry Permits

Mechanism Available for Law Enforcement Officers within and

outside the State to Verify the Validity of Permits Issued in This

State:

Information about the status of a Tennessee handgun permit (whether it

is valid, or revoked, or there is no permit) is in the Tennessee driver’s

license system and the status is shown on the driver’s license. However,

there is no way to check all states’ databases to determine the status of a

permit unless the states’ permits are linked to their driver’s license

systems.

Approximate Number of Active Concealed Carry Permit Holders as

of December 31, 2011: 519,000 (rounded to the nearest thousand)

State Adult Population (age 20 or over) per U.S. 2010 Census:

17,523,847

Unlicensed Open Carry Permitted: No

Permit to Carry Concealed: If specific eligibility and application

requirements are met, the Texas Department of Public Safety is required

to issue a license to the applicant.

Length of Permit Validity: Texas licenses to carry concealed weapons

expire on the first birthday of the license holder occurring after the fourth

anniversary of the date of issuance, and renewed licenses expire on the

license holder’s birth date, 5 years after the date of the expiration of the

previous license.

Eligibility Requirements: Under Texas law, a person is eligible for a

license to carry a concealed handgun if the person:

1. has been a legal resident of Texas for 6 months, or meets eligibility

requirements for out-of-state residents;

Tex. Gov’t Code Ann. § 411.177(a).

Tex. Gov’t Code Ann. § 411.183.

Texas Summary: Shall-

Issue State (Residents and

Nonresidents)

Appendix I: Case Study State Summaries

Page 59 GAO-12-717 Concealed Carry Permits

2. is at least 21 years of age;

100

3. with respect to criminal history: Is not charged with or convicted of a

felony;

101

is not charged with or has not been convicted of in the past

5 years a Class A or Class B misdemeanor offense

102

4. is not fugitive from justice for a felony or a Class A or Class B

misdemeanor or equivalent offense;

or disorderly

conduct or equivalent offenses; and has not been adjudicated as

having engaged in delinquent conduct constituting a felony;

5. is not a chemically dependent person;

103

6. is not incapable of exercising sound judgment with respect to the

proper use and storage of a handgun;

104

7. is qualified under state and federal law to purchase a handgun;

8. has not been determined to be delinquent in paying a child support

payment or taxes;

100

A person at least 18 years of age is eligible if the person is a veteran of the US Armed

Forces and discharged honorably, so long as the person meets the other eligibility

requirements.

101

Texas’s eligibility statute gives further content to these requirements. Specifically, there

is a definition for what constitutes a felony. Tex. Gov’t Code Ann. § 411.172(b).

102

Class A misdemeanors are punishable by up to 1 year in prison or a fine of $4,000, or

both, Tex. Penal Code Ann. § 12.21; Class B misdemeanors are punishable by up to 6

months in prison, a fine of $2,000, or both, Tex. Penal Code Ann. § 12.22.

103

A chemically dependent person means a person who frequently or repeatedly becomes

intoxicated by excessive indulgence in alcohol or uses controlled substances or

dangerous drugs so as to acquire a fixed habit and an involuntary tendency to become

intoxicated or use those substances as often as the opportunity is presented. Tex. Gov’t

Code Ann. § 411.172. A person is also chemically dependent and not entitled to a permit

if, within the past 10 years, the person has been convicted two times of a Class B

misdemeanor or greater that involves alcohol or a controlled substance as part of the

crime. Tex. Gov’t Code Ann. § 411.172(c). Other evidence may also show someone is a

chemically dependent person.

104

A person is incapable of exercising sound judgment with respect to the proper use and

storage of a handgun if the person has been diagnosed with or suffers from certain

psychiatric disorders or conditions; has been declared incompetent to manage the

person’s own affairs; or has entered a plea of not guilty by reason of insanity, among other

things. Tex. Gov’t Code Ann. § 411.172(d). Evidence that a person has a psychiatric

disorder, or condition may include, for example, involuntary psychiatric hospitalization;

inpatient or residential substance abuse treatment in the preceding 5-year period; or

diagnoses by a physician that the person is dependent on alcohol or drugs, or has certain

mental disorders including bipolar disorder, antisocial personality disorder, or chronic

dementia, among others. Tex. Gov’t Code Ann. § 411.172(e). The person may, however,

provide a certificate from a physician stating that the disorder or condition is in remission

and not likely to develop at a future time. Tex. Gov’t Code Ann. § 411.172(f).

Appendix I: Case Study State Summaries

Page 60 GAO-12-717 Concealed Carry Permits

9. is not subject to a restraining order or court protective order; and

10. has not made any material misrepresentation, or failed to disclose any

material fact in the permit application.

105

Firearms Training Requirements: The Department of Public Safety is

required to establish minimum standards for handgun proficiency,

develop a course to teach proficiency, and administer examinations to

measure proficiency. One part of the course is to be classroom, and the

other part range instruction, where the applicant must demonstrate the

applicant’s ability to safely and proficiently use the applicable category of

handgun.

The course must be administered by a qualified instructor. The course

must include between 10 and 15 hours of instruction on 1) laws related to

deadly force; 2) handgun use, proficiency, and safety; 3) nonviolent

dispute resolution; and 4) proper storage practices.

The department must also develop a continuing education course for

holders who want to renew a license. The course must be administrated

by a qualified instructor and must include at least 4 hours of the subjects

from the initial course.

The proficiency exam includes a written exam on the subjects taught in

the course and a physical demonstration of proficiency and handgun

safety procedures. The qualified handgun instructor may submit to the

department a recommendation concerning an applicant’s proficiency.

106

Certain applicants and license holders do not have to complete the range

instruction portion of the course. These include persons who are currently

serving or were honorably discharged from the U.S. or Texas state

military forces; and who within the last 5 years have completed a course

in handgun proficiency with the military forces. Applicants and license

holders that work in the criminal justice system may also avail themselves

of alternative proficiency procedures.

107

105

Tex. Gov’t Code Ann. § 411.172.

106

Tex. Gov’t Code Ann. § 411.188.

107

Tex. Gov’t Code Ann. §§ 411.1881-411.1882.

Appendix I: Case Study State Summaries

Page 61 GAO-12-717 Concealed Carry Permits

Unique State Disqualifiers/Prohibitions: Delinquent taxes or child

support payment.

Factors State Considers in Granting Reciprocity: Texas law requires

the Governor to negotiate reciprocity agreements with any other states

that provide conceal carry licenses, if the Texas Attorney General

determines that the authorities of the other state initiate background

checks of its applicants. The background check must include a search of

the FBI’s National Crime Information Center database and the Interstate

Identification Index.

108

Every year, the Texas Attorney General must submit a report listing the

states that the Attorney General has determined qualify for reciprocity and

review the statutes of states that do not to determine whether changes to

their statues are necessary to qualify.

Revocation Process: Licenses are to be revoked if the holder:

1. was not entitled to the license when it was issued;

2. made a material misrepresentation or failed to disclose a material fact

in an application;

3. becomes ineligible, unless the only basis of ineligibility is being

charged with the commission of a crime (in which case the license is

suspended);

4. is convicted of an offense related to the unlawful carrying of a

handgun by a license holder;

5. is determined to have engaged in conduct constituting a reason to

suspend a license (listed above) after the person’s license has been

previously suspended twice for the same reason; or

6. the holder’s fee is returned and the holder does not repay it plus $25,

within 30 days of being notified.

The holder can reapply for a license after 2 years and the reason for

revocation does not exist and has not existed for 2 years. A holder whose

fee was returned can reapply at any time.

109

108

Tex. Gov’t Code Ann. § 411.173(b).

109

Tex. Gov’t Code Ann. § 411.186.

Appendix I: Case Study State Summaries

Page 62 GAO-12-717 Concealed Carry Permits

After receiving written notice of a denial, revocation, or suspension of a

license, the holder has 30 days to request a hearing before a justice of

the peace acting as an administrative hearing officer. The hearing must

be scheduled within 30 days of the request and held within no more than

60 days. The ruling may be appealed within 30 days to a county court.

110

Mechanism Available for Law Enforcement Officers within and

outside the State to Verify the Validity of Permits Issued in This

State:

Law enforcement officials in Texas, and other states, have access to

concealed carry permit information when they run a wanted person check

on permit holders. Texas law enforcement officers can also access

concealed carry permit information from the computers of squad cars.

Approximate Number of Active Concealed Carry Permit Holders as

of December 31, 2011: 279,000 (rounded to the nearest thousand)

State Adult Population (age 20 or over) per U.S. 2010 Census:

5,917,339

Unlicensed Open Carry Permitted: Virginia allows residents to carry

firearms openly without a permit.

Permit to Carry Concealed: Persons wishing to apply for a concealed

carry permit can apply to the clerk of the circuit court of their county or

city.

Length of Permit Validity: 5 years

111

Eligibility Requirements: The applicant must be 21 years of age or

older

112

Criminal History:

and the following persons are ineligible to be issued a permit:

110

Tex. Gov’t Code Ann. § 411.180.

111

Va Code Ann. § 18.2-308(D).

112

Va. Code Ann. § 18.2-308(D).

Virginia Summary: Shall-

Issue State (Residents and

Nonresidents)

Appendix I: Case Study State Summaries

Page 63 GAO-12-717 Concealed Carry Permits

1. Persons who have been convicted of a felony;

2. individuals subject to a restraining or protective order and prohibited

from purchasing or transporting a firearm;

3. persons who have been adjudicated delinquent for certain crimes,

unless they file a petition to the circuit court that is granted;

4. individuals who have been convicted of two or more misdemeanors

within the 5 years prior to the application, if one of the misdemeanors

was Class 1; if two or more of the misdemeanors are not Class 1,

then the judge has discretion;

5. individuals who have been convicted of driving while under the

influence or public drunkenness within the 3-year period preceding the

application, or have been determined to be a habitual drunkard under

Virginia law.

6. fugitives from justice;

7. individuals who have been convicted within 3 years of the application,

or have a charge pending for, specified crimes, including assault,

assault and battery, sexual battery, discharging a firearm, and

brandishing a firearm;

8. individuals who have been convicted of or have a charge pending for

stalking; and

9. Individuals who have previous convictions or adjudications of

delinquency that would have been a felony if committed by an

adult;

113

Mental Health and Substance Abuse:

10. persons who were admitted to outpatient treatment; adjudicated

mentally incapacitated or legally incompetent; or were acquitted by

reason of insanity under Virginia or similar state law, unless the

person was discharged or released from custody, or competency was

restored, as applicable, more than 5 years prior to the date of

application;

11. individuals addicted to, using, or distributing any controlled substance;

12. individuals who have received mental health treatment or substance

abuse treatment in a residential setting within 5 years prior to the date

of their application; and

113

Va. Code Ann. § 18.2-308(E)(16). This applies where the convictions occurred within

16 years of the later of the conviction or adjudication or the release from incarceration. Id.

Appendix I: Case Study State Summaries

Page 64 GAO-12-717 Concealed Carry Permits

13. individuals who within the 3 years prior to the date of application were

found guilty of any criminal offense set forth in Virginia’s controlled

substances laws, or of illegal possession or distribution of any

controlled substance; this prohibitor also applies where the court find

the facts sufficient for a finding of guilty but ordered probation or other

conditions;

114

Other:

14. aliens not lawfully admitted for permanent residence;

15. persons who have been discharged from the U.S. Armed Forces

under dishonorable conditions; and

16. individuals who the court finds, by a preponderance of the evidence,

based on specific acts by the applicant, are likely to use a weapon

unlawfully or negligently to endanger others.

115

This final condition provides for limited discretion to deny a permit. To

support this finding, the sheriff, chief of police, or attorney for the

Commonwealth may submit to the court a sworn written statement

indicating the applicant is likely to use a weapon unlawfully or negligently

to endanger others. This statement is to be based on personal knowledge

or that of a sheriff, police officer, or assistant attorney for the

Commonwealth, or a sworn statement of a competent person having

personal knowledge of specific acts.

Firearms Training Requirements: Each applicant is required to submit

proof that the applicant has demonstrated competence with a handgun.

This can be satisfied in one of the following ways:

1. Completing any hunter education or hunter safety course approved by

the Department of Game and Inland Fisheries or a similar agency of

another state;

2. completing any National Rifle Association (NRA) firearms safety or

training course;

3. completing any firearms safety or training course or class that is

available to the general public that is approved by the Department of

Public Safety or that uses NRA-certified instructors. The course may

be offered by a law enforcement agency, a junior college, a college or

114

Va. Code Ann. § 18.2-308(E).

115

Va. Code Ann. § 18.2-308(E).

Appendix I: Case Study State Summaries

Page 65 GAO-12-717 Concealed Carry Permits

a private or public institution, academy, organization, or firearms

training school;

4. completing any law enforcement firearms safety or training course or

class approved by the department of public safety offered for security

guards, investigators, etc;

5. presenting evidence of equivalent experience with a firearm through

participation in organized shooting competition or current military

service or proof of an honorable discharge from any branch of the

armed services;

6. obtaining or previously having held a license to carry a firearm in

Virginia or a locality, unless such license has been revoked for cause;

7. completing any firearms training or safety course or class, including

an electronic, video, or on-line course, conducted by a state-certified

or NRA-certified firearms instructor;

8. completing any governmental police agency firearms training course

and qualifying to carry a firearm in the course of normal police duties;

9. completing any other firearms training that the court deems adequate.

The documentation must include one of the following: a photocopy of a

certificate of completion of any of the courses or classes, an affidavit from

the instructor or organization that conducted the course or class attesting

to the completion by the applicant, or a copy of any document that shows

completion of the course or evidences participation in a firearms

competition.

116

Factor(s) State Considers in Granting Reciprocity: Virginia law

provides for an out-of-state permit to be valid if the following requirements

are met:

1. the holder is at least 21 years of age;

2. the issuing state authority provides the means for instantaneous

verification of the validity permits issued within that state, accessible

24 hours a day; and

3. the requirements and qualifications of that state’s law are adequate to

prevent possession of a permit by persons who would be denied a

116

Va. Code Ann. § 18.2-308(G).

Appendix I: Case Study State Summaries

Page 66 GAO-12-717 Concealed Carry Permits

permit in Virginia (other than the age requirements and the type of

weapon authorized to be carried).

117

The Superintendent of State Police, in consultation with the Office of the

Attorney General, is required to determine whether states meet these

requirements, maintain a registry of the qualifying states on the Virginia

Criminal Information Network, and enter into agreements for reciprocal

recognition with qualifying states. The registry is to be available to law

enforcement officers for investigative purposes

Revocation Process: Virginia law provides for revocation of a permit for

generally any offense that would disqualify a person from obtaining a

permit and also provides for some specific grounds for revocation. Any

person who is convicted of an offense that would disqualify that person

from obtaining a permit, or who made materially false statements on the

person’s application, is required to forfeit his or her permit and surrender

it to the court. When the Central Criminal Records Exchange obtains a

record of arrest, conviction or occurrence of any other event that would

disqualify a person from obtaining a concealed handgun permit, the

Central Criminal Records Exchange must notify the court that issued the

permit. The court will then revoke the permit of the disqualified person,

and notify the State Police and the person whose permit was revoked.

118

The permit is also required to be revoked if the permit holder is under the

influence of alcohol or illegal drugs while carrying the handgun in a public

place, which is guilty of a Class 1 misdemeanor. The convicting court is

required to revoke the permit and notify the issuing circuit court. The

permit holder is ineligible to apply for a permit for 5 years.

119

The court must revoke the permit of a person who is admitted to

outpatient treatment or adjudicated mentally incapacitated or legally

incompetent under Virginia or similar state law, and must notify the State

Police and the permit holder of the revocation.

120

117

Va. Code Ann. § 18.2-308(P).

118

Va. Code Ann. § 18.2-308(J); Va. Code Ann. § 18.2-308(D).

119

Va. Code Ann. § 18.2-308(J1). Conviction of specified crimes is prima facie evidence

that the person is “under the influence” for purposes of this section. Id.

120

Va. Code Ann. § 18.2-308(J4).

Appendix I: Case Study State Summaries

Page 67 GAO-12-717 Concealed Carry Permits

Virginia law provides for suspension only in limited circumstances, where

a person has a felony charge pending for stalking or assault, assault and

battery, sexual battery, discharging a firearm, or brandishing a firearm. In

these instances, the court hearing the charge or the court that issued the

permit may have the permit suspended while the charge is pending.

Mechanism Available for Law Enforcement Officers within and

outside the State to Verify the Validity of Permits Issued in This

State:

Law enforcement officials in Virginia can check the Virginia Crime

Information Network to obtain information related to the status of permits

issued in Virginia. Law enforcement officials from other states can run a

Concealed Weapons Query in the International Justice and Public Safety

Network to verify the status of permits issued in Virginia. Law

enforcement officials from other states can also query the Federal Bureau

of Investigation’s Interstate Identification Index, or call the Duty Sergeant

at the Virginia State Police to verify the validity of a Virginia permit.

Appendix II: Objectives, Scope and

Methodology

Page 68 GAO-12-717 Concealed Carry Permits

This report describes (1) the extent to which states allow concealed carry

permits, and how select states’ eligibility requirements and laws regarding

and recognition of other states’ permits differ, (2) what processes select

states use to help ensure they revoke permits when holders no longer meet

eligibility requirements, and (3) how law enforcement officials in select

states determine whether permits they encounter are current and valid.

To address all three objectives, we conducted a case study on 9 states—

Arizona, California, Florida, Georgia, Louisiana, Maryland, Tennessee,

Texas, and Virginia—which we selected to illustrate a variety of

applicable state laws and procedures. However the results cannot be

generalized across all states. The information obtained from these case

studies provides a broad understanding of the different requirements and

processes states utilize in issuing permits. Our selection covers states

representing each of the factors outlined below:

• States from each of the permit issue designations-states classify

themselves based on their issuing laws: (1) no-issue: where

concealed carry is prohibited; (2) may-issue: the issuing authority

has discretion to grant concealed carry permits to eligible

individuals; (3) shall-issue: a concealed carry permit must be

issued if no statutory reason for denial exists; and (4) permit not

required to carry concealed handguns. We selected states that

issue to residents only, and states that issue to both residents and

nonresidents.

• Issuing authority—states with a centralized (singular) issuing

authority and decentralized—multiple issuing authorities within a

state.

• Reciprocity—the number of states that have reciprocity with each

other and the number of agreements in place.

• The selection includes states that represent a range of the length

of time concealed carry permits are valid, as well as differing

eligibility requirements such as mandatory training on a gun safety

program or demonstrating proficiency of firing a handgun, and

reason(s) for requesting the permit.

To determine states’ concealed carry permit practices and whose permits

they honor, we gathered information on permit issuing laws, issuing

authorities, and reciprocity agreements for the 50 states and the District

of Columbia. This report presents the states’ laws as they were as of

Appendix II: Objectives, Scope and

Methodology

Appendix II: Objectives, Scope and

Methodology

Page 69 GAO-12-717 Concealed Carry Permits

March 2012. To obtain data on the current number of active concealed

carry permits, and the length of time a permit is valid, we contacted 48

states.

We also contacted the 48 states to obtain information on their

permit tracking systems, reasons for denials, and revocations. Of the 48

states, we received data from 45 states.

In addition, we obtained information from and interviewed federal

agencies with firearms-related experience and law enforcement

responsibilities—the Bureau of Alcohol, Tobacco, Firearms, and

Explosives (ATF) and the Federal Bureau of Investigations (FBI). We

obtained information from and interviewed FBI headquarters officials on

their audits of select states that utilize federal databases that states query

when screening concealed carry permit applicants. We obtained

information and interviewed ATF headquarters officials and field special

agents on their experience and perspective on state permits. In addition,

we interviewed non-governmental groups representing a cross section of

different views on concealed carry permit issues to obtain information

regarding a historical perspective of carry conceal issues.

We requested data for the

period 2007 through 2011 to illustrate any trends; however some states

could not provide complete data for this period. Most states were able to

provide 2011 data. To assess the reliability of these data, we asked the

states questions about the systems they use to track the data, any steps

taken to verity accuracy, and any limitations to the data. Our analysis was

largely dependent on the availability of state data on the number of

concealed carry permits. In some cases, statewide data were not

available, and in other cases only data from certain time periods were

available. As a result of these limitations, we determined that the data

were sufficiently reliable solely to illustrate a minimum number of total

active permits and approximate number of state specific permits.

To obtain more detailed information about specific state laws and

procedures for carry concealed permits, we met with officials at various

The remaining 2 states (Illinois and Vermont) do not issue concealed carry permits, so

the number of valid permits does not apply to them. The District of Columbia does not

issue concealed carry permits.

Three states did not provide data, 1-state does not capture the data centrally (Alabama),

2 other states did not respond to our requests for information (New Hampshire and North

Dakota).

We interviewed organizations such as the Brady Campaign, Gun Owners of America,

Mayors Against Illegal Guns, and the National Rifle Association.

Appendix II: Objectives, Scope and

Methodology

Page 70 GAO-12-717 Concealed Carry Permits

state and local agencies in the 9 states in our case study. We obtained

and analyzed information about state laws, eligibility requirements, and

procedures including, (1) how states screen, approve, and deny permit

applicants and (2) factors considered by states when entering into

reciprocity agreements with other states and the number of current

reciprocity agreements in place. We also obtained and analyzed state

data on state-maintained statistics on the number of active and denied

permits, and other firearms-related information such as specific

requirements and training guidance.

To determine how the 9 states we selected for our case study monitor

active holders to ensure they remain eligible to possess firearms and

what actions the states take to revoke permits when permit holders

become ineligible, we obtained information from the 9 states that issue

permits: Arizona, California, Florida, Georgia, Louisiana, Maryland,

Tennessee, Texas, and Virginia. Of these 9, 3 states (California, Georgia,

and Virginia) have a decentralized process for issuing permits. We

obtained information and interviewed the issuing officials (county sheriffs,

probate court staff, and circuit court staff) from three to five jurisdictions

per state. From the 9 states, we selected for our case study that issue

permits, we obtained and analyzed available data on the number of

permits revoked, and the extent to which states recovered revoked

permits from permit holders. We also interviewed state and local officials

responsible for issuing permits to obtain information on applicable laws

and procedures for monitoring, and revoking permits.

To identify how law enforcement officials in the 9 select states that issue

permits determine whether permits they encounter are current and valid,

we obtained information on the physical features embedded in each state’s

permit, and the state and federal systems utilized to check the status of

permits, and we interviewed state and local law enforcement officials

across the 9 states to obtain information on processes they use to validate

permits. These law enforcement officials included those representing state

department of law enforcement, state departments of public safety, state

police or state highway patrol, county sheriffs, and city police.

We conducted our work from August 2011 through July 2012 in

accordance with all sections of GAO’s Quality Assurance Framework that

are relevant to our objectives. The framework requires that we plan and

perform the engagement to obtain sufficient and appropriate evidence to

meet our stated objectives and to discuss any limitations in our work. We

believe that the information and data obtained, and the analysis

conducted, provide a reasonable basis for any findings in this product.

Appendix III: State Issuing Authority, as of

March 2012

Page 71 GAO-12-717 Concealed Carry Permits

State Type of authority Issuing authority

Approximate number

of authorities

(if decentralized)

Alabama Decentralized County sheriffs 67

Alaska Centralized Department of Public Safety 1

Arizona Centralized Department of Public Safety 1

Arkansas Centralized Arkansas State Police 1

California Decentralized County or city sheriffs or other heads of

municipal police departments 60+

Colorado

Decentralized County sheriffs 64

Connecticut Centralized Specialized Licensing and Firearms Unit 1

Delaware Decentralized Superior courts 3

Florida Centralized Department of Agriculture and Consumer

Services 1

Georgia Decentralized County probate courts 159

Hawaii Decentralized County or municipal police chiefs 4

Idaho Decentralized County sheriffs 44

Illinois Not applicable Not applicable N/A

Indiana Decentralized Heads of local law enforcement municipalities 556

Iowa Decentralized for

residents/centralized for

nonresidents

County sheriffs for residents, Commissioner of

Public Safety for nonresidents

Kansas Centralized Attorney General’s Office 1

Kentucky Centralized Kentucky State Police 1

Louisiana Centralized Deputy Secretary of the Department of Public

Safety and Corrections 1

Maine Decentralized for

residents/centralized for

nonresidents

Mayor and municipal officers or councilors of a

city or town for residents, Chief of State Police

for nonresidents 488

Maryland Centralized Licensing Division of the State Police

Department 1

Massachusetts Decentralized for

residents/centralized for

nonresidents

Local police or Colonel of the State Police

351

Michigan Decentralized Counties Concealed Weapon Licensing Boards 83

Minnesota Decentralized County sheriffs 87

Mississippi Centralized Department of Public Safety 1

Missouri Decentralized County or city sheriffs 115

Montana Decentralized County sheriffs 56

Nebraska Centralized Nebraska State Patrol 1

Nevada Decentralized County sheriffs 17

Appendix III: State Issuing Authority, as of

March 2012

Appendix III: State Issuing Authority, as of

March 2012

Page 72 GAO-12-717 Concealed Carry Permits

State Type of authority Issuing authority

Approximate number

of authorities

(if decentralized)

New Hampshire Decentralized for

residents/centralized for

nonresidents

Local mayor or police chief for residents; Director

of State Police for nonresidents

235+

New Jersey

Decentralized County superior courts 21

New Mexico Centralized Department of Public Safety 1

New York Decentralized Licensing officer of the city or county of

applicant’s primary residence or place of

business

50+

North Carolina Decentralized County sheriffs 100

North Dakota Centralized Bureau of Criminal Investigation 1

Ohio Decentralized County sheriffs 88

Oklahoma Centralized Bureau of Investigation 1

Oregon Decentralized County sheriffs 36

Pennsylvania Decentralized County sheriffs or city police chiefs 67+

Rhode Island

Decentralized Attorney General’s Office and city chiefs of police 39

South Carolina Centralized Law Enforcement Division 1

South Dakota Decentralized County sheriffs 66

Tennessee Centralized Department of Safety and Homeland Security 1

Texas Centralized Department of Public Safety 1

Utah Centralized Bureau of Criminal Identification 1

Vermont Not applicable Not applicable N/A

Virginia Decentralized for

residents/centralized for

nonresidents

Clerk of Circuit Courts for residents, Department

of State Police for nonresidents

120

Washington Decentralized Chiefs of police of municipalities, county sheriffs 39 +

Washington D.C.

Not applicable Not applicable (N/A) N/A

West Virginia Decentralized County sheriffs 55

Wisconsin Centralized Department of Justice 1

Wyoming Centralized Attorney General’s Office through the Division of

Criminal Investigation

Source: GAO analysis of state laws and publicly available state information

For states that have a + symbol beside the number of authorities, the approximate number of

authorities may be significantly higher.

Appendix IV: State Concealed Carry Permit

Designation, as of March 28, 2012

Page 73 GAO-12-717 Concealed Carry Permits

While there is no federal law specifically addressing the issuance of

concealed carry permits, 48 states have passed laws allowing the state to

issue citizens concealed carry permits. A few states do not require a

permit to carry certain firearms in public within that particular state, but

issue permits for reciprocity purposes in other states. See table 6 below.

Table 6: State Concealed Carry Permit Designation, as of March 2012

State-by-state

issue

designation

Permit not

required

Shall-issue

to residents

and

nonresidents

Shall-

issue to

residents

only

Limited

discretion

to deny a

permit

May-issue to

residents

and

nonresidents

May-issue to

residents

only

Nonresidents

subject to

certain

requirements

No-

issue

Alabama X

Alaska X X

Arizona X X

Arkansas X X

California X X

Colorado X X

Connecticut X

Delaware X

Florida X

Georgia X X

Hawaii X

Idaho X

Illinois X

Indiana X X X

Iowa X X

Kansas X

Kentucky X

Louisiana X

Maine X X

Maryland X

Massachusetts X X

Michigan X X

Minnesota X X

Mississippi X

Missouri X X

Montana X X

Nebraska X

Nevada X

Appendix IV: State Concealed Carry Permit

Designation, as of March 28, 2012

Appendix IV: State Concealed Carry Permit

Designation, as of March 28, 2012

Page 74 GAO-12-717 Concealed Carry Permits

State-by-state

issue

designation

Permit not

required

Shall-issue

to residents

and

nonresidents

Shall-

issue to

residents

only

Limited

discretion

to deny a

permit

May-issue to

residents

and

nonresidents

May-issue to

residents

only

Nonresidents

subject to

certain

requirements

No-

issue

New Hampshire X X

New Jersey X

New Mexico X

New York X X

North Carolina X

North Dakota X

Ohio X

Oklahoma X

Oregon X X X

Pennsylvania X X X

Rhode Island

X X X

South Carolina X X

South Dakota X

Tennessee X X

Texas X

Utah X X X

Vermont X

Virginia X X

Washington X

Washington D.C. X

West Virginia X

Wisconsin X

Wyoming X X X

Source: GAO analysis of state laws.

These states are “shall-issue” states, but state law provides the licensing authority with limited

discretion in specified circumstances to deny a permit. For example, based on demonstrated

evidence, the applicant is likely to use a weapon unlawfully or in such other manner that would

endanger the applicant or others.

The laws of these states provide authority to issue permits to non-residents on a limited basis, for

example, to non-residents who own property in the state, who are employed in the state, or who have

a permit from their home state, among other requirements. Oregon shall issue to residents, and may

issue to residents of contiguous states who have a compelling business interest or other legitimate

demonstrated need.

Rhode Island law provides for two mechanisms for obtaining a permit: the Rhode Island Attorney

General has "may issue" authority to issue permits under R.I. Gen. Laws § 11-47-18, and cities and

towns have "shall-issue" authority, with limited discretion, to issue a permit, under R.I. Gen. Laws §

11-47-11.

Appendix V: Number of Valid Permits

Page 75 GAO-12-717 Concealed Carry Permits

Table 7: Number of Valid Permits (as Reported by States) as of December 31, 2011, unless noted otherwise

State

Approximate number of

active permits (as of

December 31, 2011 or

unless otherwise noted)

Approximate

adult population

(age 20 or over)

per U.S. 2010 Census

Ratio of active

permits issued

to adult population

(age 20 or over)

Length of time

permit/license

valid (years)

for initial applicants

Alabama

Not available 3,503,000 Not available 1 year

Alaska 7,000 502,000 1.4% 5 years

Arizona 163,000

4,572,000 3.6 5 years

Arkansas 111,000 2,120,000 5.2 5 years

California

35,000

(as of 09/01/11)

26,802,000 0.1

2 years ; 4 years for peace

officers; 3 years for judges

Colorado 90,000 3,665,000 2.5 5 years

Connecticut 165,000

2,658,000 6.2 5 years

Delaware 5,000 664,000 0.8 3 years

Florida 887,000

14,288,000 6.2 7 years

Georgia 600,000 6,906,000 11.5 5 years

Hawaii

b,c

0 1,022,000 0 1 year

Idaho 76,000

1,092,000 7.0 4 years if issued before

7/1/06; 5 yrs if after 7/1/06

Illinois Not applicable Not applicable

Not applicable Not applicable

Indiana 406,000

4,677,000 8.7

4 years; lifetime for

honorably retired law

enforcement

Iowa

243,000 (estimate based

on number of

issuances from 2007 to

2011)

2,226,000 10.9 5 years

Kansas 39,000 2,042,000 1.9 4 years

Kentucky 170,000 3,193,000 5.3 5 years

Louisiana (Estimate) 40,000 3,279,000 1.2 5 years

Maine 4,000

1,017,000 0.4 4 years

Maryland

12,000

(as of 10/1/11)

4,257,000 0.3 2

years; 3 years after

renewal

Massachusetts

251,000

(as of 2/1/12)

4,926,000 5.1 6 years

Michigan (as of 1/5/12) 296,000 7,235,000 4.1 5 years

Minnesota 91,000

3,873,000 2.3 5 years

Mississippi 43,000 2,118,000 .2 4 years

Missouri

(as of 1/20/12)

133,000 4,388,000 3.0 3 years

Montana 27,000 738,000 3.7 4 years

Appendix V: Number of Valid Permits

Page 76 GAO-12-717 Concealed Carry Permits

State

Approximate number of

active permits (as of

December 31, 2011 or

unless otherwise noted)

Approximate

adult population

(age 20 or over)

per U.S. 2010 Census

Ratio of active

permits issued

to adult population

(age 20 or over)

Length of time

permit/license

valid (years)

for initial applicants

Nebraska 13,000 1,314,000 1.0 5 years

Nevada 55,000

1,964,000 2.8 5 years

New Hampshire Not available

a,b

991,000 Not available

4 years

New Jersey 32,000

6,501,000 At least 0.5 2 years

New Mexico (estimate) 22,000 1,479,000 1.5

4 years (5 years for retired

law enforcement)

New York

b,d

14,481,000

3 years in New York City; 5

years for Nassau, Suffolk,

and Westchester; Until

Revoked for all other

counties

North Carolina 240,000 6,977,000 3.4 5 years

North Dakota Not available

a,b

501,000 Not available 5 years

Ohio

(as of 1/1/12)

270,000 8,469,000 3.2

5 years on/after 3/14/07; 4

years prior to 3/14/07

Oklahoma

(as of 1/26/12)

122,000 2,710,000 4.5 5 or 10 years (optional if no

prohibitions)

Oregon 147,000

2,859,000 5.1 4 years

Pennsylvania

786,000 9,523,000 8.3 5 years

Rhode Island

4,000 (does

not include permits

issued by localities)

791,000 At least 0.5 4 years

South Carolina

148,000

(as of 12/26/11)

3,401,000 4.4 4 years

South Dakota 62,000 587,000 10.6 4 years

Tennessee

341,000

(as of 1/3/12)

4,670,000 7.3 4 years

Texas 519,000

b,e

17,524,000 3.0

4 years; 5 years after

renewal

Utah 347,000

1,801,000 19.3 5 years

Vermont Not applicable Not applicable Not applicable Not applicable

Virginia 279,000

5,917,000 4.7 5 years

Washington 351,000

4,955,000 7.1 5 years

Washington D.C. Not applicable Not applicable Not applicable Not applicable

West Virginia 92,000 1,414,000 4.7 5 years

Wisconsin 40,000 4,185,000 1.0 5 years

Wyoming 23,000 412,000 5.6 5 years

Source: GAO analysis of state reported data and state laws.

Appendix V: Number of Valid Permits

Page 77 GAO-12-717 Concealed Carry Permits

States that have missing data either do not track, could not provide, or declined to provide the

information requested.

These states issue permits to residents and nonresidents, and the approximate number for these

states includes permits issued to both groups. As a result, the ratios of active permit holders to adult

population for these states reflect permit holders that do not reside in the state, which may result in a

higher percentage.

Of the four counties that issue permits in Hawaii, only two provided information.

New York has no mechanism to purge inactive files. The New York State Police became the

repository for concealed carry permit data in 1936. As of December 31, 2011, New York had

1,281,662 applications on file since 1936. However, this number is not an accurate count of people

who possess a valid carry concealed weapons permit from the state of New York. Some permit

holders may have died and some permit holders may have had their permits revoked or cancelled

since 1936.

Texas’ approximate number of nonresident permits is as of September 22, 2011

Appendix VI: Approximate Total Number of

Active Permits by Residency

Page 78 GAO-12-717 Concealed Carry Permits

Of the 48 states that issue concealed carry permits, 26 issue to residents

and nonresidents of their state, and of these 26 states that issue to

nonresidents, 10 provided data on the number of valid nonresident

permits, as shown in the table.

Table 8: Status for States that issue to Nonresidents, as of December 31, 2011, unless otherwise noted

State

Approximate

total number

of active permits

Approximate number of

active resident permits

Approximate

number of active

nonresident permits

Approximate

percentage of

nonresident

permit holders

Arizona 163,000 Not available Not available

California

(as of 09/01/11)

37,000 37,000

Not available

Connecticut 165,000 148,000 16,000 9.7%

Florida 887,000 784,000 104,000 11.7

Hawaii

0 0 0 0.0

Idaho 77,000 76,000 700 0.9

Indiana 406,000 406,000 50 0.0

Iowa (estimate based on

number of issuances from

2007 to 2011)

243,000 Not available

Not available

Maine 6,000 4,000 2,000 33.3

Maryland 12,000 Not available Not available

Massachusetts

(as of 2/1/12)

251,000 250,000 1,000 0.4

Minnesota 91,000 Not available

Not available

Nevada 55,000 50,000 6,000 10.9

New Hampshire Not available

Not available

New Jersey 32,000 Not available Not available

New York Not available

Not available Not available

North Dakota Not available

Not available

Oregon 147,000 Not available Not available

Pennsylvania 786,000 Not available Not available

Rhode Island (does not

include permits issued by

localities)

4,000 Not available Not available

South Carolina

(as of 12/26/11)

148,000 Not available Not available

Tennessee

(as of 1/3/12)

341,000 Not available Not available

Texas 519,000

515,000 4,000 0.8

Appendix VI: Approximate Total Number of

Active Permits by Residency

Appendix VI: Approximate Total Number of

Active Permits by Residency

Page 79 GAO-12-717 Concealed Carry Permits

State

Approximate

total number

of active permits

Approximate number of

active resident permits

Approximate

number of active

nonresident permits

Approximate

percentage of

nonresident

permit holders

Utah 347,000 147,000 201,000 57.9

Virginia 279,000 274,000 5,000 1.8

Washington 351,000 Not available

Not available

Source: GAO analysis of state reported data.

Notes: Differences in total are due to the rounding of numbers.

States that have missing data either do not track, could not provide, or declined to provide the

information requested.

Of the four counties that issue permits in Hawaii, only two provided information.

New York has no mechanism to purge inactive files. The New York State Police became the

repository for concealed carry permit data in 1936. As of December 31, 2011, New York had

1,281,662 applications on file since 1936. However, this number is not an accurate count of people

who possess a valid carry concealed weapons permit from the state of New York. Some permit

holders may have died and some permit holders may have had their permits revoked or cancelled

since 1936.

Texas’ approximate number of nonresident permits is as of September 22, 2011

Appendix VII: State Reciprocity, as of March

2012

Page 80 GAO-12-717 Concealed Carry Permits

State

Permits from other states

that are recognized by this state

States that recognize

permits issued in this state

Alabama AK, AZ, AR, CO, FL, GA, ID, IN, IA, KY, LA, MI, MS,

MO, NH, NC, ND, OK, SD, TN, TX, UT, WY (23)

AK, AZ, AR, CO, FL, GA, ID, IN, IA, KY, LA, MI, MS,

MO, NH, NC, ND, OK, SD, TN, TX, UT, WY (23)

Alaska AL, AZ, AR, CA, CO ,CT, DE, FL, GA, HI, ID, IN, IA,

KS, KY, LA, ME, MD, MA, MI, MN, MS, MO, MT, NE,

NV, NH, NJ, NM, NY, NC, ND, OH, OK, OR, PA, RI,

SC, SD, TN, TX, UT, VA, WA, WV, WI, WY (47)

AL, AZ, AR, CO, DE, FL, GA, ID, IN, IA, KS, KY, LA,

MI, MN, MS, MO, MT, NE, NV, NH, NM, NC, ND, OH,

OK, PA, SC, SD, TN, TX, UT, VA, WV, WY (35)

Arizona AL, AK, AR, CA, CO ,CT, DE, FL, GA, HI, ID, IN, IA,

KS, KY, LA, ME, MD, MA, MI, MN, MS, MO, MT, NE,

NV, NH, NJ, NM, NY, NC, ND, OH, OK, OR, PA, RI,

SC, SD, TN, TX, UT, VA, WA, WV, WI, WY (47)

AL, AK, AR, CO, DE, FL, GA, ID, IN, IA, KS, KY, LA,

MI, MS, MO, MT, NE, NV, NH, NM, NC, ND, OH, OK,

PA, SC, SD, TN, TX, UT, VA, WI, WV, WY (35)

Arkansas AL, AK, AZ, CO, DE, FL, GA, ID, IN, IA, KS, KY, LA,

ME, MI, MN, MS, MO, MT, NE, NV, NH, NM, ND, NC,

OH, OK, PA, SC, SD, TN, TX, UT, VA, WA, WI, WV,

WY (38)

AL, AK, AZ, CO, DE, FL, GA, ID, IN, IA, KS, KY, LA,

ME, MI, MN, MS, MO, MT, NE, NV, NH, NC, ND, OH,

OK, PA, SC, SD, TN, TX, UT, VA, WA, WV, WI, WY

(37)

California CA does not honor permits issued in other states. AK, AZ, ID, IN, IA, KY, MI, MO, MT, NE, NC, OK, SD,

TN, TX, UT, WI (17)

Colorado AL, AK, AZ, AR, DE, FL, GA, ID, IN, IA, KS, KY, LA, MI,

MS, MO, MT, NE, NH, NM, NC, ND, OK, PA, SD, TN,

TX, UT, WI, WY (30)

AL, AK, AZ, AR, DE, FL, GA, ID, IN, IA, KS, KY, LA,

MI, MS, MO, MT, NE, NH, NM, NC, ND, OK, PA, SD,

TN, TX, UT, WI, WY (30)

Connecticut CT does not honor permits issued in other states. AK, AZ, ID, IN, IA, KY, MI, MO, MT, NE, NC, OK, SD,

TN, TX, UT, WI (17)

Delaware AK, AZ, AR, CO, FL, KY, ME, MI, MO, NM, NC, ND,

OH, OK, TN, TX, UT, VA, WV (19)

AK, AZ, AR, CO, FL, ID, IN, IA, KY, ME, MI, MO, NM,

NC, ND, OH, OK, SD, TN, TX, UT, VA, WV (23)

Florida AL, AK, AZ, AR, CO, DE, GA, ID, IN, IA, KS, KY, LA,

MI, MS, MO, MT, NE, NH, NM, NC, ND, OH, OK, PA,

SC, SD, TN, TX, UT, VT, VA, WA, WV, WY (35)

AL, AK, AZ, AR, CO, DE, GA, ID, IN, IA, KS, KY, LA,

MI, MS, MO, MT, NE, NH, NM, NC, ND, OH, OK, PA,

SC, SD, TN, TX, UT, VA, WA, WV, WY (33)

Georgia AL, AK, AR, AZ, CO, FL, IA, ID, IN, KY, LA, MI, MS,

MO, MT, ND, NH, NC, OK, PA, SD, TN, TX, UT, WI,

WY (26)

AL, AK, AZ, AR, CO, FL, ID, IN, IA, KY, LA, MI, MS,

MO, MT, NH, NC, ND, OK, PA, SD, TN, TX, UT, WI,

WY (26)

Hawaii HI does not honor permits issued in other states. AK, AZ, ID, IN, IA, KS, KY, MI, MO, NE, NC, OK, SD,

TN, TX, UT, WI (17)

Idaho AL, AK, AZ, AR, CA, CO ,CT, DE, FL, GA, HI, IN, IA,

KS, KY, LA, ME, MD, MA, MI, MN, MS, MO, MT, NE,

NV, NH, NJ, NM, NY, NC, ND, OH, OK, OR, PA, RI,

SC, SD, TN, TX, UT, VA, WA, WV, WI, WY (47)

AL, AK, AZ, AR, CO, FL, GA, IN, IA, KY, LA, MI, MO,

MT, NE, NH, NC, ND, OH, OK, PA, SD, TN, TX, UT,

WI, WY (27)

Illinois IL does not honor permits issued in other states. Not applicable

Indiana AL, AK, AZ, AR, CA, CO ,CT, DE, FL, GA, HI, ID, IA,

KS, KY, LA, ME, MD, MA, MI, MN, MS, MO, MT, NE,

NV, NH, NJ, NM, NY, NC, ND, OH, OK, OR, PA, RI,

SC, SD, TN, TX, UT, VA, WA, WV, WI, WY (47)

AL, AK, AZ, AR, CO, FL, GA, ID, IA, KY, LA, MI, MS,

MO, MT, NH, NC, ND, OK, PA, SD, TN, TX, UT, WI,

WY (26)

Iowa AL, AK, AZ, AR, CA, CO ,CT, DE, FL, GA, HI, ID, IN,

KS, KY, LA, ME, MD, MA, MI, MN, MS, MO, MT, NE,

NV, NH, NJ, NM, NY, NC, ND, OH, OK, OR, PA, RI,

SC, SD, TN, TX, UT, VA, WA, WV, WI, WY (47)

AL, AK, AZ, AR, CO, FL, GA, ID, IN, KY, LA, MI, MO,

MT, NE, NH, NC, ND, OK, PA, SD, TN, TX, UT, WI,

WY (26)

Appendix VII: State Reciprocity, as of March

2012

Appendix VII: State Reciprocity, as of March

2012

Page 81 GAO-12-717 Concealed Carry Permits

State

Permits from other states

that are recognized by this state

States that recognize

permits issued in this state

Kansas AK, AZ, AR, CO, FL, HI, KY, LA, MI, MN, MO, NE, NV,

NJ, NM, NC, ND, OH, OK, SC, TN, TX, WV (23)

AK, AZ, AR, CO, FL, ID, IN, IA, KY, LA, MI, MN, MO,

MT, NE, NV, NC, ND, OH, OK, SC, SD, TN, TX, UT,

WI, WV (27)

Kentucky AL, AK, AZ, AR, CA, CO ,CT, DE, FL, GA, HI, ID, IA,

IN, KS, LA, ME, MD, MA, MI, MN, MS, MO, MT, NE,

NV, NH, NJ, NM, NY, NC, ND, OH, OK, OR, PA, RI,

SC, SD, TN, TX, UT, VA, WA, WV, WI, WY (47)

AL, AK, AZ, AR, CO, DE, FL, GA, ID, IN, IA, KS, LA,

MI, MN, MS, MO, MT, NE, NV, NH, NM, NC, ND, OH,

OK, PA, SC, SD, TN, TX, UT, VA, WI, WV, WY (36)

Louisiana AL, AK, AZ, AR, CO, FL, GA, ID, IN, IA, KS, KY, ME,

MI, MN, MS, MO, MT, NE, NM, NV, NH, NC, ND, OH,

OK, PA, SC, SD, TN, TX, UT, VT, VA, WA, WI, WV, WY

(38)

AL, AK, AZ, AR, CO, FL, GA, ID, IN, IA, KS, KY, ME,

MI, MN, MS, MO, MT, NE, NV, NH, NC, ND, OH, OK,

PA, SC, SD, TN, TX, UT, VA, WA, WI, WV, WY (36)

Maine AR, DE, LA, MI, ND, PA, SD, WY (8) AK, AZ, AR, DE, ID, IN, IA, KY, LA, MI, MO, NE, NC,

ND, OK, PA, SD, TN, UT, WY (20)

Maryland MD does not honor permits issued in other states. AK, AZ, ID, IN, IA, KY, MI, MO, MT, NC OK, SD, TN,

TX, UT, WI (16)

Massachusetts MA does not honor permits issued in other states. AK, AZ, ID, IN, IA, KY, MI, MO, MT, NC, OK, SD, TN,

TX, UT (15)

Michigan AL, AK, AZ, AR, CA, CO ,CT, DE, FL, GA, HI, ID, IA,

IN, KS, KY, LA, ME, MD, MA, MN, MS, MO, MT, NE,

NV, NH, NJ, NM, NY, NC, ND, OH, OK, OR, PA, RI,

SC, SD, TN, TX, UT, VA, WA, WV, WI, WY (47)

AL, AK, AZ, AR, CO, DE, FL, GA, ID, IN, IA, KS, KY,

LA, ME, MN, MS, MO, MT, NE, NV, NH, NM, NC, ND,

OH, OK, PA, SC, SD, TN, TX, UT, VA, WA, WI, WV,

WY (38)

Minnesota AK, AR, KS, KY, LA, MI, MO, NM, NV, OH, OK, TN, TX,

UT, WY (15)

AK, AZ, AR, ID, IN, IA, KS, KY, LA, MI, MS, MO, MT,

NE, NM, NC, OK, SD, TN, UT, VA, WI, WY (23)

Mississippi AL, AK, AZ, AR, CO, FL, GA, IN, KY, LA, MI, MN, MO,

MT, NH, NC, OK, SD, TN, TX, UT, VA, WA, WV, WY

(25)

AL, AK, AZ, AR, CO, FL, GA, ID, IN, IA, KY, LA, MI,

MO, MT, NH, NC, OK, SD, TN, TX, UT, VA, WA, WV,

WY (26)

Missouri AL, AK, AZ, AR, CA, CO ,CT, DE, FL, GA, HI, ID, IA,

IN, KS, KY, LA, ME, MD, MA, MI, MN, MS, MT, NE, NV,

NH, NJ, NM, NY, NC, ND, OH, OK, OR, PA, RI, SC,

SD, TN, TX, UT, VA, WA, WV, WI, WY (47)

AL, AK, AZ, AR, CO, DE, FL, GA, ID, IN, IA, KS, KY,

LA, MI, MN, MS, MT, NE, NV, NH, NM, NC, ND, OH,

OK, PA, SC, SD, TN, TX, UT, VA, WA, WV, WY (36)

Montana AK, AZ, AR, CA, CO, CT, FL, GA, ID, IN, IA, KS, KY,

LA, MD, MA, MI, MN, MS, MO, NE, NV, NJ, NM, NY,

NC, ND, OH, OK, OR, PA, SC, SD, TN, TX, UT, VA,

WA, WI, WV, WY (41)

AK, AZ, AR, CO, FL, GA, ID, IN, IA, KY, LA, MI, MS,

MO, NE, NM, NC, ND, OK, PA, SD, TN, TX, UT, VA,

WI, WY (27)

Nebraska AK, AZ, AR, CA, CO, CT, FL, HI, ID, IA, KS, KY, LA,

ME, MI, MN, MT, MO, NV, NJ, NM, NC, ND, OH, OK,

OR, RI, SC, TN, TX, UT, VA, WV, WY (34)

AK, AZ, AR, CO, FL, ID, IN, IA, KS, KY, LA, MI, MO,

MT, NV, NC, ND, OH, OK, SD, TN, TX, UT, VA, WI,

WY (26)

Nevada AK, AZ, AR, KS, KY, LA, MI, MO, NE, NM, NC, OH, TN,

RI, WV (15)

AK, AZ, AR, ID, IN, IA, KS, KY, LA, MI, MN, MO, MT,

NE, NC, OK, SD, TN, TX, UT (20)

New Hampshire AL, AK, AZ, AR, CO, FL, GA, IA, ID, IN, KY, LA, MI,

MO, MS, NC, ND, OK, PA, TN, UT, WY (22)

AL, AK, AZ, AR, CO, FL, GA, ID, IN, IA, KY, LA, MI,

MS, MO, NC, ND, OK, PA, SD, TN, UT, WY (23)

New Jersey NJ does not honor permits issued in other states. AK, AZ, ID, IN, IA, KS, KY, MI, MO, MT, NE, NC, OK,

SD, TN, TX, UT (17)

New Mexico AK, AZ, CO, DE, FL, KY, MI, MN, MO, MT, NC, ND,

OH, OK, SC, TN, TX , VA, WY (19)

AK, AZ, AR, CO, DE, FL, ID, IN, IA, KS, KY, LA, MI,

MN, MO, MT, NE, NV, NC, ND, OH, OK, SD, TN, TX,

UT, VA, WV, WI, WY (30)

Appendix VII: State Reciprocity, as of March

2012

Page 82 GAO-12-717 Concealed Carry Permits

State

Permits from other states

that are recognized by this state

States that recognize

permits issued in this state

New York NY does not honor permits issued in other states AK, AZ, ID, IN, IA, KY, MI, MO, MT, NC, OK, SD, TN,

TX, UT, WI (16)

North Carolina AL, AK, AZ, AR, CA, CO ,CT, DE, FL, GA, HI, ID, IA,

IN, KS, KY, LA, ME, MD, MA, MI, MN, MS, MO, MT,

NE, NV, NH, NJ, NM, NY, ND, OH, OK, OR, PA, RI,

SC, SD, TN, TX, UT, VA, WA, WV, WI, WY (47)

AL, AK, AZ, AR, CO, DE, FL, GA, ID, IN, IA, KS, KY,

LA, MI, MS, MO, MT, NE, NV, NH, NM, ND, OH, OK,

PA, SC, SD, TN, TX, UT, VA, WA, WI, WV, WY (36)

North Dakota AL, AK, AZ, AR, CO, DE, FL, GA, ID, IN, IA, KS, KY,

LA, ME, MI, MO, MT, NE, NH, NM, NC, OH, OK, PA,

SC, SD, TN, TX, UT, VA, WA, WI, WV, WY (35)

AL, AK, AZ, AR, CO, DE, FL, GA, ID, IN, IA, KS, KY,

LA, ME, MI, MO, MT, NE, NH, NM, NC, OH, OK, PA,

SD, TN, TX, UT, VA, WA, WV, WI, WY (34)

Ohio AK, AZ, AR, DE, FL, ID, KS, KY, LA, MI, MO, NE, NM,

NC, ND, OK, SC, TN, UT, VA, WA, WV, WY (23)

AK, AZ, AR, DE, FL, ID, IN, IA, KS, KY, LA, MI, MN,

MO, MT, NE, NV, NM, NC, ND, OK, SC, SD, TN, UT,

VA, WA, WV, WY (29)

Oklahoma AL, AK, AZ, AR, CA, CO ,CT, DE, FL, GA, HI, ID, IA,

IN, KS, KY, LA, ME, MD, MA, MI, MN, MS, MO, MT,

NE, NV, NH, NJ, NM, NY, NC, ND, OH, OR, PA, RI,

SC, SD, TN, TX, UT, VA, WA, WV, WI, WY (47)

AL, AK, AZ, AR, CO, DE, FL, GA, ID, IN, IA, KS, KY,

LA, MI, MN, MS, MO, MT, NE, NH, NM, NC, ND, OH,

PA, SC, SD, TN, TX, UT, VA, WA, WV, WY (35)

Oregon OR does not honor permits issued in other states. AK, AZ, ID, IN, IA, KY, MI, MO, MT, NE, NC, OK, SD,

TN, UT (15)

Pennsylvania AK, AZ, AR, CO, FL, GA, IA, ID, IN, KY, LA. ME, MI,

MO, MT, ND, NH, NC, OK, SD, TN, TX, UT, VA, WI,

WV, WY (27)

AK, AZ, AR, CO, FL, GA, ID, IN, IA, KY, LA, ME, MI,

MO, MT, NH, NC, ND, OK, SD, TN, TX, UT, VA, WV,

WI, WY (27)

Rhode Island RI does not honor permits issued in other states. AK, AZ, ID, IN, IA, KY, MI, MO, NE, NV, NC, OK, SD,

TN, TX, UT (16)

South Carolina AK, AZ, AR, FL, KS, KY, LA, MI, MO, NC, OH, OK, TX,

TN, VA, WV, WY (17)

AK, AZ, AR, FL, ID, IN, IA, KS, KY, LA, MI, MO, MT,

NE, NM, NC, ND, OH, OK, SD, TN, TX, UT, VA, WV,

WY (26)

South Dakota AL, AK, AZ, AR, CA, CO ,CT, DE, FL, GA, HI, ID, IA,

IN, KS, KY, LA, ME, MD, MA, MI, MN, MS, MO, MT,

NE, NV, NH, NJ, NM, NY, NC, ND, OH, OK, OR, PA,

RI, SC, TN, TX, UT, VA, WA, WV, WI, WY (47)

AL, AK, AZ, AR, CO, FL, GA, ID, IN, IA, KY, LA, ME,

MI, MS, MO, MT, NC, ND, OK, PA, TN, TX, UT, VA,

WV, WY (27)

Tennessee AL, AK, AZ, AR, CA, CO ,CT, DE, FL, GA, HI, ID, IA,

IN, KS, KY, LA, ME, MD, MA, MI, MN, MS, MO, MT,

NE, NV, NH, NJ, NM, NY, NC, ND, OH, OK, OR, PA,

RI, SC, SD, TX, UT, VA, WA, WV, WI, WY (47)

AL, AK, AZ, AR, CO, DE, FL, GA, ID, IN, IA, KS, KY,

LA, MI, MN, MS, MO, MT, NE, NV, NH, NM, NC, ND,

OH, OK, PA, SC, SD, TX, UT, VA, WA, WV, WI, WY

(37)

Texas AL, AK, AZ, AR, CA, CO, CT, DE, FL, GA, HI, IA, ID,

IN, KS, KY, LA, MA, MD, MI, MS, MO, MT, NE, NM,

NC, ND, NJ, NV, NY, OK, PA, RI, SC, SD, TN, UT, VA,

WA, WV, WY (41)

AL, AK, AZ, AR, CO, DE, FL, GA, ID, IN, IA, KS, KY,

LA, MI, MN, MS, MO, MT, NE, NM, NC, ND, OK, PA,

SC, SD, TN, UT, VA, WI, WV, WY (33)

Utah AL, AK, AZ, AR, CA, CO ,CT, DE, FL, GA, HI, ID, IA,

IN, KS, KY, LA, ME, MD, MA, MI, MN, MS, MO, MT,

NE, NV, NH, NJ, NM, NY, NC, ND, OH, OK, OR, PA,

RI, SC, SD, TN, TX, VA, WA, WV, WI, WY (47)

AL, AK, AZ, AR, CO, DE, FL, GA, ID, IN, IA, KY, LA,

MI, MN, MS, MO, MT, NE, NH, NC, ND, OH, OK, PA,

SD, TN, TX, VA, WA, WV, WI, WY (34)

Vermont VT does not require concealed weapons carriers to

have a permit. Therefore, reciprocity does not apply in

the state. Local statutes may vary.

Not applicable

Appendix VII: State Reciprocity, as of March

2012

Page 83 GAO-12-717 Concealed Carry Permits

State

Permits from other states

that are recognized by this state

States that recognize

permits issued in this state

Virginia AK, AZ, AR, DE, FL, KY, LA, MI, MN, MS, MO, MT, NE,

NC, ND, NM, OH, OK, PA, SC, SD, TN, TX, UT, WA,

WV, WY (27)

AK, AZ, AR, DE, FL, ID, IN, IA, KY, LA, MI, MS, MO,

MT, NE, NM, NC, ND, OH, OK, PA, SC, SD, TN, TX,

UT, WV, WI, WY (29)

Washington AR, FL, LA, MI, MS, MO, NC, ND, OH, OK, TN, UT (12) AK, AZ, AR, FL, ID, IN, IA, KY, LA, MI, MS, MO, MT,

NC, ND, OH, OK, SD, TN, TX, UT, VA, WI (23)

Washington D.C. DC does not honor permits issued in other states. Not applicable

West Virginia AK, AZ, AR, DE, FL, KS, KY, LA, MI, MS, MO, NM, NC,

ND, OK, OH, PA, SC, SD, TX, TN, UT, VA, WI (24)

AK, AZ, AR, DE, FL, ID, IN, IA, KS, KY, LA, MI, MS,

MO, MT, NE, NV, NC, ND, OH, OK, PA, SC, SD, TX,

TN, UT, VA, WY (29)

Wisconsin AZ, AR, CA, CO, CT, GA, HI, ID, IA, IN, KS, KY, LA,

MD, MI, MN, MT, NE, NM, NY, NC, ND, PA, TN, TX,

UT, VA, WA, WY (29)

AK, AZ, AR, CO, GA, ID, IN, IA, KY, LA, MI, MS, MO,

MT, NE, NV, NH, NC, ND, OK, PA, SD, TN, UT, WV

(26)

Wyoming AL, AK, AZ, AR, CO, FL, GA, ID, IN, IA, KY, LA, ME,

MI, MN, MS, MO, MT, NE, NH, NM, NC, ND, OH, OK,

PA, SC, SD, TN, TX, UT, VA, WV (33)

AL, AK, AZ, AR, CO, FL, GA, ID, IN, IA, KY, LA, ME,

MI, MN, MS, MO, MT, NE, NH, NM, NC, ND, OH, OK,

PA, SC, SD, TN, TX, UT, VA, WI (33)

Source: GAO analysis of publically available state information.

Appendix VIII: GAO Contacts and Staff

Acknowledgments

Page 84 GAO-12-717 Concealed Carry Permits

Carol R. Cha (202) 512-4456 or [email protected]

Eileen R. Larence (202) 512-6510 or larencee@gao.gov

In addition to the contacts named above, Kirk Kiester (Assistant Director),

Aditi S. Archer, Willie Commons III, Michele C. Fejfar, Sally P. Gilley,

Andrew C. Moore, and Janet G. Temko made significant contributions to

the work. Also contributing to this report were Katherine M. Davis, Eric

Hauswirth, Linda S. Miller, and Robert Robinson.

Appendix VIII: GAO Contacts and Staff

Acknowledgments

GAO Contacts

Staff

Acknowledgments

(440992)

The Government Accountability Office, the audit, evaluation, and

investigative arm of Congress, exists to support Congress in meeting its

constitutional responsibilities and to help improve the performance and

accountability of the federal government for the American people. GAO

examines the use of public funds; evaluates federal programs and

policies; and provides analyses, recommendations, and other assistance

to help Congress make informed oversight, policy, and funding decisions.

GAO’s commitment to good government is reflected in its core values of

accountability, integrity, and reliability.

The fastest and easiest way to obtain copies of GAO documents at no

cost is through GAO’s website (www.gao.gov). Each weekday afternoon,

GAO posts on its website newly released reports, testimony, and

correspondence. To have GAO e-mail you a list of newly posted products,

go to www.gao.gov and select “E-mail Updates.”

The price of each GAO publication reflects GAO’s actual cost of

production and distribution and depends on the number of pages in the

publication and whether the publication is printed in color or black and

white. Pricing and ordering information is posted on GAO’s website,

http://www.gao.gov/ordering.htm.

Place orders by calling (202) 512-6000, toll free (866) 801-7077, or

TDD (202) 512-2537.

Orders may be paid for using American Express, Discover Card,

MasterCard, Visa, check, or money order. Call for additional information.

Connect with GAO on Facebook, Flickr, Twitter, and YouTube.

Subscribe to our RSS Feeds or E-mail Updates. Listen to our Podcasts .

Visit GAO on the web at www.gao.gov.

Contact:

Website: www.gao.gov/fraudnet/fraudnet.htm

E-mail: f[email protected]

Automated answering system: (800) 424-5454 or (202) 512-7470

Katherine Siggerud, Managing Director, [email protected], (202) 512-

4400, U.S. Government Accountability Office, 441 G Street NW, Room

7125, Washington, DC 20548

Chuck Young, Managing Director, young[email protected], (202) 512-4800

U.S. Government Accountability Office, 441 G Street NW, Room 7149

Washington, DC 20548

GAO’s Mission

Obtaining Copies of

GAO Reports and

Testimony

Order by Phone

Connect with GAO

To Report Fraud,

Waste, and Abuse in

Federal Programs

Congressional

Relations

Public Affairs

Please Print on Recycled Paper.