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Community Based Strategy for Implementation of the Firearms Law in Quebec:A project sponsored by the National Crime Prevention Centre

Coalition for Gun Control

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Overview Background : Coalition,NCPC Project, Firearms Law Trends in Firearm Violence The Problem Role of Community in Solutions

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BACKGROUND

The Coalition for Gun Control was founded in 1990

Supported by more than 350 org. in Canada,100 organizations in Quebec

Has worked to pass strong firearms legislation and defend it

Is now focused on implementation

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Objectives of Project

To reduce death, injury and crime with firearms in Quebec as well as improving the perception of safety raise awareness about problem increase engagement of citizens increase participation reduce fear reduce injury, death, crime

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Approach

to develop community based tools which can be used to support implementation of the firearms law in Quebec

focus on vulnerable groups intervention models for

urban contexts (English and French) rural contexts (French)

Problem Identification and Analysis

Analysis and Causal Factors

Development of Interventions

Implementation

Monitoring and Evaluation

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Identify, And Then, Interrupt, The Causal Chain

We aim to break the chain as early as possible

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Potential Target Regions

Bas Saint-Laurent Saguenay-Lac-Saint-Jean Québec Estrie Montréal Côte-Nord Montérégie

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Process 1. Work within existing committees and structures

(eg. suicide, crime etc) and engage relevant stakeholders

2. Define problem and opportunities

3. Identify “best practices” and develop appropriate tools (e.g. policies, training, checklists)

4. Building cross-sectoral cooperation to develop and implement strategies

5. Evaluate

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Deliverables (3 years)

Background research on problem, fact-based policies and models

Mobilization of key stakeholders Assess current knowledge, attitudes,

skills Develop models and guidelines Train the trainers Validation and evaluation

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CANADIAN FIREARMS LEGISLATION

Handguns are restricted weapons and have required registration and special permits since the 1930’s. There are 1 million handguns in Canada.

Military weapons were banned in 1977, 1991 and 1995

Licensing gun owners and registration of rifles and shotguns were introduced in 1995

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Licensing

Screening based on identifiable risks Criminal record Knowledge and skill with firearms Mental health Knowing who has guns allows

preventative measures

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Registration ESSENTIAL to enforce licensing (i.e.

preventing licensed individuals from giving guns to unlicensed individuals)=

Assists in preventative action Assists in law enforcement -tracing etc. Licensing and registration discourage

casual ownership and reinforce accountability

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Legislation is ONE tool To reduce the risk those who are a

danger to themselves or others will have access to firearms

Prohibition of firearms where the risk is considered to outweigh the utility

Distinguish legal versus illegal guns

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Status of Law

Public compliance with new Firearms Act continues to strengthen:

2 million (95%) of owners are licensed 7 million (90%) of guns are registered Since Dec.1, 1998, the notification line has received

well over 22,000 calls. This has proven to be an excellent tool for an applicant’s spouse (or others) to share concerns about public safety

Police access the system 1500 times a day

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Supreme Court of Canada “The registration provisions cannot be severed from the rest of the Act. The licensing provisions require everyone who possesses a gun to be licensed; the registration provisions require all guns to be registered. These portions of the Firearms Act are both tightly linked to Parliament’s goal of promoting safety by reducing the misuse of any and all firearms. Both portions are integral and necessary to the operation of the scheme.” (Supreme Court, Reference Regarding Firearms Act (June 2000)

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Support for Gun Control Legislation by RegionJanuary 2003

46-reg

Saskatchewan

Alberta

B.C.

Manitoba

Atlantic

Ontario

Quebec

Total 55 19 7 18

69 16 6 9

58 20 6 15

50 24 7 18

47 15 11 28

45 21 7 26

36 18 7 38

27 22 14 35

Strongly support

Somewhat support

Somewhat oppose

Strongly oppose

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TRENDS IN FIREARM VIOLENCE

1991: 1444 firearm deaths in Canada 2002: 816 firearm deaths Overall firearm death and injury rates

in Canada have declined Murders with rifles and shotguns have

plummeted Rates in Quebec have declined faster

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Source: Deaths Involving Firearms. Wilkins, Kathryn. Statistics Canada Health Reports, Volume 16 Number 4. June 2005

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Source: Deaths Involving Firearms. Wilkins, Kathryn. Statistics Canada Health Reports, Volume 16 Number 4. June 2005

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Year  1991 1995 Latest ChangeTotal firearms deaths      2002

Number 1444 1125 816 -43%Rate per 100,000 5.2 3.8 2.5 -52%Homicides with firearms      2004

Number 271 176 172 -37%Rate per 100,000 0.97 0.6 0.54 -44%Homicides with rifles and shotguns

     

Number 103 61 37 -64%Rate per 100,000 0.37 0.21 0.12 -68%Homicides with other guns (handguns etc.)

     

Number 168 115 135 -20%Rate per 100,000 0.6 0.39 0.42 -30%Homicides without guns      

Number 485 412 450 -7%Rate per 100,000 1.73 1.39 1.41 -18%

Homicides of women with firearms

 1991 1995 2004

Number 85 43 32 -62%

Rate per 100,000 0.6 0.29 0.2 -67%

Homicides of women without firearms

     

Number 185 152 166 -10%

Rate per 100,000 1.3 1.02 1.04 -20%

Robberies with firearms      2003

Number 8995 6692 3877 -57%

Rate per 100,000 32 23 12 -63%

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Trends in Firearm Deaths (per 100,000)

0

1

2

3

4

5

6

7

1990 1991 1992 1993 1994 1995 1996 1997 1998 1999 2000 2001 2002

Québec Canada

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Trends in Firearm Homicide Rates (per 100,000)

0

0.2

0.4

0.6

0.8

1

1.2

1.4

1990 1991 1992 1993 1994 1995 1996 1997 1998 1999 2000 2001 2002 2003 2004

Québec Canada

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Trends in Firearm Robbery Rates (per 100,000)

0

10

20

30

40

50

60

70

1990 1991 1992 1993 1994 1995 1996 1997 1998 1999 2000 2001 2002 2003 2004

Québec Canada

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Rate of Firearm Robbery

0

10

20

30

40

50

60

70

1990 1991 1992 1993 1994 1995 1996 1997 1998 1999 2000 2001

Québec Canada

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ROLE OF COMMUNITY GROUPS IN IMPLEMENTATION

Laws are words on paper Essentials for implementation

reside in the community - Understanding of risks, law, interventions - Issuing/renewing licenses - Removing firearms from high risk situations,

individuals - Motivation to intervene: roles and

responsibilities

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Police

Chiefs Managers Investigators Frontline Officers Specialists - outreach, community

policing, domestic violence Associations

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Education

School Boards Teachers Associations Principals Guidance Counsellors Teachers

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Healthcare

Nurses Pediatricians Emergency Physicians Trauma Physicians Suicide Prevention Experts Psychiatrists Public Health Associations

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Social Services Domestic Violence Workers Psychologists Social Workers Community Organizations Crime Prevention Groups Offender Support Organizations The Public

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THE PROBLEM

Crime, fear Death and injury - homicide, suicide,

accidents Domestic violence

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Number of Firearm Deaths by Type, Quebec, 1990-2003

1990 1991 1992 1993 1994 1995 1996 1997 1998 1999 2000 2001 2002 2003

Suicides 344 304 302 292 297 279 294 291 294 259 221 205 188 166

Homicides 87 99 88 74 52 62 65 60 62 62 72 62 29 28

Accidents 15 11 12 8 9 3 5 9 4 7 4 7 4 10

Undetermined

14 11 14 16 5 3 3 1 2 3 9 5 3 2

Total 460 425 416 390 363 347 367 361 362 331 306 279 224 206

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Cost of firearms violence Firearms death and injury is estimated

to cost $6.6 billion per year in Canada Fear of firearms violence can affect

economic development

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Firearm death

Public health experts view firearm death like disease

Firearm death has common cause

Availability and misuse of firearms

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Situation in Quebec Significant variations in the rates of

firearms violence and injury Perception of an increase is not based

on fact The need to raise awareness of the

risks of suicide with firearms Important differences between urban

and rural contexts Need for better control

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Problem: Access to Guns

Firearm deaths rates linked to availability and easy access to guns

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Misconceptions

Some misconceptions are that: Only criminals, gangs misuse firearms Problem is handguns not rifles and

shotguns Homicide is major cause of death with

firearms (not suicide)

Firearms are the most common instrument particular for males

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Regional Variations in Firearm Death

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Ted Miller and Mark Cohen,"Costs of Gunshot and Cut/Stab Wounds in the United States, with some Canadian Comparisons. " Accid Anal Prev 1997; 29 (3): 329-41.

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Firearm Death Rates (per 100,000) In Census Metropolitan Areas

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Crime: Risk FactorsFor some types of crime: disadvantage, inequity etc.

Insecurity (real and perceived)Age and genderAlcohol or substance abuseJob loss or financial problemsMarital breakdownContextual

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Sources of Firearms Vary In rural areas rifles and shotguns are most

often recovered in crime In large urban centres, handguns are more

often recovered More than half of handguns illegally imported

from USA Guns/drugs/financial crimes interconnected

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Problem: Crime Involving Firearms in Canada

Source: Smuggling work groups; Illegal Movement of Firearms (April, 1995)

Canada: Firearms Recovered in Crime

47%

22%

21%

7% 3%

Rifles and shotguns

Airguns, replicas, etc.

Handguns

Other

Sawed off

Proportion of rifles and shotguns recovered in crime is much higher in rural communities

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Rural Context

Rates of death with firearms are higher where there are more firearms

Generally firearms are more available in rural areas

The culture of firearms is different In rural areas suicide is often

committed with firearms

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Virtually Every Illegal Firearm Begins As A Legal Firearm

Legal firearms are sometimes misused by their owners (whether civilians or state officials)

Legal firearms are stolen or illegally sold from civilians, dealers, state stockpiles

Illegal firearms are smuggled in from the other countries

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Opportunity Areas-Policing Increase awareness of gun problem: data

and trend analysis (fact-based decisions and interventions)

Prioritization of gun problem and integration with community policing to build community “ownership”

Taking preventative action - clear procedures: “when in doubt say no”

Think guns in all investigations: crime, suicide, domestic violence

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Problem: Suicide 20% of suicides with firearms - most common

is .22 rifle Quebec rates above national average (240

suicides with firearms every year) Males, youth and elderly at risk Some professions, eg. policing, have particular

firearm risk Regional variations Particular problem in rural areas

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Links to violence - 50% domestic murders with firearms end in suicide

Presence of firearm is correlated with completed suicides - lethality

In Quebec, suicide rates with firearms increases where rate of hunting permits is high

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Regional Variations in Quebec Suicide Rates

0 5 10 15 20 25 30 35 40 45

Taux par 100 000 h.

Laval

Montérégie

Ensemble du Québec

Saguenay-Lac-St-Jean

Lanaudière

Québec

Mauricie-Centre-du-Québec

Nord-du-Québec

Abitibi-Témiscamingue

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Risk Factors Are Known

Previous suicidal behaviour Male Substance and alcohol abuse Mental illness Recent loss Family history etc. BUT MANY DO NOT FIT THE PROFILE -

opportunistic esp. youth

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Opportunity Areas- Suicide Raise awareness about risks of guns

and suicide among public and stakeholders

Routinely ask about access to guns in interventions with people at risk of suicide, and their family. Ask: Do you have access to a gun?

Improve reporting of risks for licensing and continuous checking

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Problem: Domestic Violence

1/3 of murders of women by intimate partners in Canada with guns - 88% long guns

Particular problem in rural areas Risk factors: alcohol, financial

problems, marital breakdown, mental illness

For every death many threatened

Presence of gun is a threat in itself in conflictWomen represent a higher percentage of victims (30%) than users (15%)Public and stakeholders need information about risks for womenPublic and stakeholders need information about spousal notification line to CFC

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Trends in intimate partner homicide

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Domestic Violence Family Risk Factors

Male dominant family, lower status employment

Young women at risk Economic dependence of woman Isolation Supporting peer attitudes and

behaviors Lower income

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Opportunity Areas Raise awareness about risks of guns

and domestic violence among public and stakeholders

Routinely ask about access to guns in interventions with people at risk of being victim or perpetrator of domestic violence

Improve reporting of risks for licensing and continuous checking

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Opportunity Areas- Domestic Violence and Policing

Police must routinely query presence of firearms on domestic violence calls

Understand options - temporary removal versus revocation

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Problem: Firearms and Youth

Suicide – 50 youth each year in Quebec 1990-1999 (2000 – 16, 2001-20)

Injury and accidental death Family violence – 40% of youth killed

are killed with a firearm Young offenders: taxing, gang

activity, arming for self-protection

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Suicide and youth – risk factors

Predisposition - poor adjustment, impulsivity, mental illness, substance abuse

Social environment – absence of social networks, problems in the family, sexual or physical abuse

Events – death in the family, divorce, failure, stress..

Understanding Impacts:Rate of Firearm-Related Death Among Children (<15 Years)

Source: Centers for Disease Control: “Rates of Homicides, Suicides and Firearm-related Death Among Children – 26 industrialized countries.” MMWR. Vol. 46 No.5. 1997.

United States Finland

Northern Ireland Israel

Canada BelgiumNorway Austria France

Switzerland New Zealand

Australia Sweden

ItalyDenmark Scotland

England and WalesIrelandSpain

Taiwan Hong Kong Netherlands

SingaporeJapan

Kuwait

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Risk Factors :Youth Violence

Substance Abuse Mental Illness Aggression and anti-social behaviour Family violence Adolescent nature: impulsive,

immature, imitative, desire for power

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Of victims of violence 23% are between 15-24 even though they represent only 11% of the population

There are high rates of victimization Victimization often engenders

violence

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Youth gangs

Firearms play a role in threatening violence and power

Both real and imitation firearms are used

In rural areas youth primarily access firearms which are stolen

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Youth Access to Guns

Home is where majority of gun death and accidents take place

24% of Quebec homes have guns 33% guns not safely stored Long guns:hunters in family Hand guns: illegal or restricted

weapon (ie children of police, military)

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Replicas

Replica firearms are often recovered in crime

Each year more than 50 children under 18 are hospitalized for injuries caused by air guns

They are the principal cause of eye loss among children and young adults

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Trends In Firearm Death Rates (by age and gender)

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Suicide prevention with youth

With suicide prevention, major concerns relate to unintended consequences of education programs

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Opportunity Areas- Youth Raise awareness about risks of guns

and youth among family and stakeholders ie. schools, child protection, social workers

Routinely ask about access to guns in interventions with youth at risk of suicide or victims of violence

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Safe Storage

Safe storage is essential in rural areas Guns must be unloaded They must be rendered inoperable

with a trigger lock or in a container unless there is immediate need for them

Ammunition must be separate

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Transport

Firearms must be transported unloaded and safely stored in the trunk of the vehicle

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Opportunity Areas: General

Improve compliance with safe storage Increase awareness of risks of firearms in

home Motivate preventative action Improve reporting of risks for licensing and

continuous checking

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Implications for Law

Implications: Licensing to address risks Continuous eligibility Criticality of risk assessment

questions, references, spousal notification

Links to community information!!

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ROLE OF COMMUNITY Firearms are a public safety issue Community awareness of problem and

solutions Take Preventative Action - voluntary

removal of firearms; counselling; legal interventions

Understanding of risk factors

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Stakeholders - overview Parents and families: understand the

risks and take appropriate action Health care professionals: know the

signs, provide counseling, intervene Guidance counsellors and teachers:

know the signs, provide counseling, intervene

Police: identify risks, intervene

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Domestic Violence Workers: safety planning, inquiries re the presence of guns

Communities: report potential problems, demand accountability

Broad education: rational for the law, responsibilities

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Increase awareness of risks Improve police, physicians, shelter

worker, educator procedures Information line Training and education Performance measurement and

accountability mechanisms

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Ask a Question, Save a Life

Do you have access to a gun? Does your (suicidal) son\daughter

have access to a gun? Does the person who threatens you

have access to a gun? Does the person who threatens your

mother have access to a gun?

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Best Practices

Policing and Community partnerships: Project Trident, Metropolitan London Police to address high crime area, Boston Gun Project

Aggressive publicity and outreach program in high crime area

Community outreach and partnerships increase information sharing

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Best Practices Batshaw Family Services: screening for

firearms in domestic violence calls and for suicidal youth in their care

Centres de Jeunesse, Services Psycho-sociaux are also looking at adding specific question re:guns and conjugal violence

Générations: Telephone help lines will question clients in crisis re:Firearms

Montreal Children`s Crisis Team- Screening for firearms

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NEXT STEPS Suggestions and evaluation Examples of tools, programs Volunteers to help review tools,

programs Volunteers to promote awareness in

their organizations Volunteers for on-going awareness

and media efforts Training inside your organisation

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Discussion Recommendations for disseminating

information Know the risks and means of preventing

suicide and domestic violence and communicating the message

Concrete measures to encourage your organization to 1) increase awareness 2) change policies and practices

Suggestions???