Colton's Task Force: A 2025 Illinois Domestic Violence Task Force Report

Introduction

Colton Tanner Miller and Cassandra Tanner Miller’s Story

On September 21, 2019, one-and-a-half-year-old Colton Michael Miller was shot and killed by his father, Christopher Michael Miller. Despite his Firearm Owner Identification (FOID) card being revoked in January 2018 due to an aggravated battery charge, Christopher Miller retained possession of his firearm. In the 20 months leading up to Colton’s death, his mother, Cassandra Tanner Miller, repeatedly contacted multiple agencies in Illinois to seek assistance in removing Christopher’s firearm, but he was never forced to relinquish it. On September 21, Miller went to Cassandra’s home intending to kill her, Colton, and Cassandra’s nine-year-old daughter. Cassandra was injured but escaped with her daughter. However, Miller used his firearm to kill both himself and Colton.

The tragic case of Colton Tanner Miller’s death underscores the urgent need for stronger enforcement of firearm regulations, particularly for individuals with a history of violence. This circumstance exposes systemic gaps in ensuring compliance with revoked firearm permits and the failure of authorities to enforce restrictions effectively. In response to Cassandra’s sustained advocacy efforts, the Domestic Violence Task Force, also known as Colton’s Task Force, was created to assess, address, and identify gaps within domestic violence laws, interventions, and compliance within the state of Illinois.

Legislative Requirements

Per 20 ILCS 4106/10, the Domestic Violence Task Force Act (2021), the Task Force was to:

• Conduct a comprehensive review of the process, operation, and enforcement of current domestic violence laws across the state.
• Identify gaps in the process, operation, and enforcement of those laws.
• Develop recommendations to address those gaps.
• Establish a framework for specialized protective networks for victims, treatment options for victims and individuals who have committed domestic violence, and specialty courts designed to enhance judicial expertise in domestic violence cases.

Membership

The task force consisted of 18 members from various disciplines. Mary Ratliff, Director of Strategic Project Administrators at the Illinois Criminal Justice Information Authority, served as Chair.

Meetings

The task force held eight meetings from August 2023 to December 2024. Task force meetings were discussion-based meetings with invited speakers who explored existing domestic violence legislation and state and national criminal justice protocols. The initial meetings centered on exploring domestic violence laws to identify a clear focus for future meetings. Based on this focus, task force members then identified probation and firearm relinquishment as priority topics. Guest speakers were invited to give presentations on these topics.

Findings

Review of Existing Domestic Violence Laws and Resources

To better understand existing domestic violence laws, processes, and personnel the task force examined the following laws: ^[1]

• Illinois Domestic Violence Act of 1986 (750 ILCS 60/) (relating to law enforcement responses, orders of protection, health care providers, and general provisions)
• Illinois Criminal Code– Domestic Battery (720 ILCS 5/12-3.2)
• Illinois Criminal Code – Stalking (720 ILCS 5/12-7.3)
• Rights of Crime Victims and Witnesses Act (725 ILCS 120/)
• Firearms Restraining Order Act (430 ILCS 67/)
• Safe Homes Act (765 ILCS 750/)
• Crime Victims Compensation Act (740 ILCS 45/)
• Victims Economic Security and Safety Act (820 ILCS 180/)
• Mental Health and Developmental Disabilities Code (405 ILCS 5/6-103.3)
• Karina’s Law (HB 4469)

The task force also examined Karina’s Law, signed into law on February 10, 2025. Karina’s Law aims to protect domestic violence survivors by requiring law enforcement in Illinois to confiscate firearms due to an emergency order of protection. Additionally, they discussed initiatives like the Illinois Family Violence Coordinating Councils (IFVCC). The IFVCC aims to identify, address, and expand community responses to family violence across the state of Illinois.^[2]

The exploration of these domestic violence laws and initiatives informed the task force about the robust legislation and resources that exist within the state of Illinois regarding domestic violence. However, the task force members identified a need for strengthening firearm relinquishment legislation and protocols. To better understand the current climate of firearm relinquishment, the task force sought out presentations on current community strategies in Illinois, on firearm relinquishment in probation and parole, on information that related domestic violence and firearms nationally, and on an existing firearm relinquishment unit.

Current Processes and Enforcement of Existing Laws

To help task force members better understand firearm relinquishment in relation to domestic violence on a national level, Jennifer Waindle from the National Center on Improving Community Supervision Responses presented on firearm relinquishment best practices. Waindle’s presentation emphasized the importance of identifying individuals eligible for firearm relinquishment and continued restriction of firearm access. In summary, executing firearm relinquishment effectively, along with ongoing monitoring during probation and parole provides a strong protective framework for preventing future offenses and harm.

Nicole Bockhorn from Winnebago County’s Adult Probation Unit expanded on Waindle’s presentation by discussing community supervision strategies in Illinois for individuals convicted of domestic violence. She focused on probationary cases within a specialized domestic violence court in the 17th Judicial Circuit, emphasizing the role of education, assessments, and communication in enhancing survivor safety and accountability for those accused or charged with domestic violence. Overall, the 17th Judicial Circuit provides a promising framework for community supervision within domestic violence cases.

Finally, the task force wanted to understand what firearm relinquishment could look like on a larger scale. This led to the final presentation by Sandra Shanahan, the program manager for the Regional Domestic Violence Enforcement Unit. Her presentation focused on a dedicated firearm relinquishment unit in the state of Washington. Currently, this risk-based inter-jurisdictional and interdisciplinary unit in King County exists to review all civil domestic violence cases and to screen cases specifically for firearm information and concerns. Individuals in this unit conduct in-depth assessments, investigations, and interviews on cases that have been flagged for firearm concerns. The presentation clearly conveyed the promise that a formal unit of multidisciplinary officials and resources provides for mitigating continued harm for victims, for gaining compliance from those required to relinquish firearms, and for supporting law enforcement in confiscating them.

Framework of Specialized Protective Networks

The task force discussed specialty courts like the 17th Judicial Circuit, along with coordinating bodies like the IFVCC. Within Illinois, additional support is offered by the Illinois Coalition Against Domestic Violence; the Illinois Coalition Against Sexual Assault; The Network; Family Justice Centers; other specialized domestic violence courts; and Partner Abuse Intervention Programs (PAIP), which are offered through the Illinois Department of Human Services. A task force member also mentioned another existing firearm relinquishment unit within Illinois, called the Firearm Services Bureau. This unit regulates the eligibility of applicants who seek to acquire, possess, or transfer firearms.^[3] In the public sector, domestic violence nonprofits; public and private therapeutic services; national and local hotlines; and social workers, who connect victims to resources, all exist to support the people involved in domestic violence cases. Overall, Illinois has an existing framework of specialized protective networks for all parties in domestic violence cases.

Gaps within Existing Laws and Structures

Beyond the networks described in the previous section, task force members researched existing resources, laws, the criminal justice system, and presentations on local and national strategies and experiences. They found that Illinois has existing structures in place for firearm relinquishment and for responding to domestic violence. Task force members learned, however, that despite this wide range of resources, a lack of actionable protocols, multidisciplinary coordinated responses, and funding for training, staff, and the IFVCC exists. Consequently, until adequate training and funding are provided, firearm relinquishment may not be possible nationally or in Illinois.

In a presentation on the relationship between firearms and domestic violence at the national level, Jennifer Becker from the National Resource Center on Violence and Firearms highlighted that the lack of established protocols, coordination, and resources is a barrier to firearm relinquishment. According to Becker, the stakeholders who need to be coordinated and engaged are the courts, law enforcement, prosecutors, victim/witness coordinators, domestic violence advocates, and probation/parole offices. Currently, Illinois does not have a multidisciplinary coordinated response, which leaves this portion of firearm relinquishment best practices unfilled.

Other logistical issues create additional hurdles to the firearm relinquishment process, as well. Specifically, owners of illegal firearms may not want to relinquish their firearms out of fear they may be prosecuted, and the possibility of their firearms not being returned. Additionally, courts like the 17th Judicial Circuit utilize validated assessment tools that look at domestic violence recidivism in addition to general recidivism. However, other jurisdictions do not use assessment tools that assess specifically for the risk of domestic violence recidivism. This variation across jurisdictions can lead to differences in the kinds of services offered both to survivors and people who have committed domestic violence. Overall, the absence of standardized protocols, uniform screening tools, and coordinated responses combined with insufficient funding undermine the effectiveness of firearm relinquishment efforts.

Recommendations For Addressing Gaps

Given the aforementioned gaps in the firearm relinquishment process within domestic violence cases, the task force suggested four recommendations. They focused on utilizing a multidisciplinary coordinated response, establishing a domestic violence firearm relinquishment unit, developing a formal and explicit protocol, and allocating funds to pilot the proposed firearm relinquishment unit.

Additionally, task force members advised that the adoption of additional firearm relinquishment laws would fill gaps in current firearm relinquishment practices. Some task force members discussed their support for Karina’s Law, which was signed into law on February 10, 2025.

Recommendation #1: Construct a Multidisciplinary Coordinated Response

The task force recommends a multidisciplinary coordinated response that draws from the King County model. This statewide coordinated response would bring together key stakeholders across Illinois and local communities to develop strategies and procedures aimed at strengthening local community’s responses to domestic violence. Additionally, it would be supported by the IFVCC, since they have much of the necessary infrastructure and the relationships to assemble this response.

The primary goal of the multidisciplinary, coordinated response would be to tailor community response to the needs of survivors and individuals who have committed domestic violence. To achieve this goal, participants, such as police, prosecutors, probation officers, victim advocates, counselors, and judges, would collaborate and coordinate efforts. This multidisciplinary initiative would facilitate the development and implementation of policies and interventions, which, in turn, would facilitate monitoring firearms in relation to domestic violence cases. This monitoring would show cases where firearm relinquishment would need to be executed by law enforcement. Overall, this coordinated response would improve interagency coordination and produce more uniform responses to domestic violence cases.

Recommendation #2: Pilot Two Domestic Violence Firearm Relinquishment Units

The task force recommends the piloting of two firearm relinquishment units in Illinois, one in a predominantly rural area and one in a predominantly urban area. These units would address concerns with the execution of the firearm surrender process for domestic violence cases. Members of the units would review criminal and civil cases in the circuit that involve a court order to surrender firearms, including all civil protection order cases and family court cases. They would also screen cases for firearm information and concerns. Additionally, unit members would conduct thorough assessments, investigations, and interviews of survivors on all domestic violence cases. From here, law enforcement would inform the respondent of the court order, and the respondent would have to immediately surrender in person and in plain sight all firearms, ammunition, and firearm parts in the respondent’s custody, control, or possession along with any FOID card. Law enforcement would take possession of all firearms, dangerous weapons, ammunition, firearm preparation materials, and FOID cards belonging to the respondent that need to be personally surrendered or those discovered in pursuit of a lawful search. The units would share all information with law enforcement on identification, search, and seizure via standardized reporting forms.

Information regarding the firearm relinquishment pilots would be documented and used to assess operations, successes, and areas of improvement. This data would be used to inform and implement future domestic violence laws, policy, procedures, and protocols. Overall, the pilot units and corresponding duties would allow for identification, documentation, and, most importantly, execution of firearm relinquishment in Illinois.

Recommendation #3: Establish Formal and Explicit Protocol for Firearm Relinquishment Measures in Domestic Violence Cases

The task force recommends a formal protocol to make the process of firearm relinquishment clear and actionable. As exemplified in the presentations and in this report, the current relinquishment measures lack a clear and actionable protocol, raising issues for firearm relinquishment. The task force recommends that a firearm relinquishment protocol include but not be limited to:

• Explicitly outlining the steps, actions, and responsibilities required of each department and stakeholder (i.e., courts, law enforcement, parole and probation officers).
• Stating who is required to execute in-person relinquishment.
• Articulating specific steps for execution of in-person relinquishment.
• Identifying individuals who are not compliant with firearm relinquishment but are required to relinquish firearms due to a court order, revoked FOID, or uncertainty regarding whether they have relinquished their firearms.
• Extending the inclusion criteria for firearm removal to include all relationships as defined by the Illinois Domestic Violence Act (IDVA).
• Instituting a protocol for investigations into possession, access to, or possible acquisition of firearms.
• Complying with court rulings.
• Specifying consequences for individuals who possess or have direct access to a firearm despite a court ruling or legislative mandate prohibiting them from doing so.
• Including necessary firearm information (e.g., make, model, quantity).
• Standardizing report forms for all stakeholders involved.
• Identifying space in which to hold relinquished firearms with standardized documentation forms.
• Complying with monitoring that accords with state and federal laws.

Recommendation #4: Allocate Funds to Pilot Firearm Relinquishment Unit, to Support Expansion of the Illinois Family Violence Coordinating Council Initiative, and to Support Domestic Violence Victim Services in Underserved Communities

Funding is needed to execute the firearm relinquishment unit. The recommended funding for a devoted domestic violence firearm relinquishment unit would be allocated towards, but not limited to, personnel, travel, storage of firearms, and other costs necessary to conduct firearm relinquishment. Funding should be allocated to the IFVCC, as well. This funding would support, but not be limited to, an expansion of the IFVCC to include additional counties and judicial circuits based on community need, supporting the pilot of the domestic firearm relinquishment unit, the creation of the firearm relinquishment protocol, related training, and outreach to increase community awareness. Finally, some citizens of Illinois have limited access to domestic violence victim services due to geography and limited resources. The task force recommends additional funding to victim services in unserved and underserved areas that could be used for, but not limited to, advocacy and counseling services for victims of domestic violence. Current literature echoes the need for funding, pointing to an increase of funds being an important necessity for making firearm relinquishment a reality.^[4]

Conclusion

Updates to the firearm relinquishment process are needed to ensure the safety and well-being of all Illinois citizens. Therefore, the task force recommends the creation of a multidisciplinary firearm relinquishment response, the piloting of two dedicated firearm relinquishment units, the development of clear protocols for firearm relinquishment in domestic violence cases, and the allocation of funding for implementation. These recommendations aim to address existing challenges, prevent future harm, and educate Illinois residents on domestic violence and firearm relinquishment. By implementing these recommendations, Illinois can take meaningful steps toward breaking the cycle of domestic violence and ensuring greater protection for survivors.