NHTSA Pushing All States for Legislation to Increase Punishment in High BAC Level DUI Arrests
By: William C. Head, Atlanta, GA
In its never-ending quest to deter drinking drivers from becoming impaired
drivers, NHTSA (an acronym for the federal government's traffic safety
organization, National Highway Traffic Safety Administration) has used the
traditional "carrot-and-stick" approach to coerce states into passing new
laws that more severely punish DUI-alcohol drivers who have high breath
(or blood) alcohol levels [hereafter called 'BAC levels']. In a
study released in May of 2004, NHTSA reviewed the beneficial effects
derived from Minnesota's program. See this link:
http://www.nhtsa.dot.gov/people/injury/alcohol/EnhancedSanctions/pages/contents.html
This study also highlights
enactment of similar "high BAC enhancement" laws in other states. The
NHTSA report cites statistics on 31 states that have enacted some type of
enhanced penalties when first offense DUI drivers have high BAC levels.
The penalties are not standardized from state to state, but NHTSA is
spreading the word across the USA in order to have other states fall in
line. The sampling of increased punishments that have been enacted for
first DUI-offense drivers, age 21 and over, include:
- Longer or more intensive alcohol education and/or treatment (11 states)
- Limitations on deferred judgment provisions (2 states)
- Limitations on plea reductions (3 states)
- Additional or enhanced driver sanctions (mandatory minimum and/or maximum)
- jail (8 states)
- driver license sanctions (3 states)
- jail or jail/community restitution and fine (5 states)
- jail or jail/electronic home monitoring, fine, and license sanctions (5 states)
- Vehicle sanctions, including
ignition interlock devices (6 states), and administrative plate
impoundment (1 state) or vehicle registration revocation (1 state)
- Court consideration of high BAC
in sentencing as an aggravating or special factor (3 states) or
requirement that court explain why certain sanctions are not imposed (1
state)
- "Hold for court" provision that
restricts release from jail upon arrest (1 state).
Most of
these states received financial reward from the federal government in the
form of Section 410 grants that are designed to pay most of the costs for
local governments to fund increased DUI enforcement. The Section 410
grants are the successor program to the original Section 408 grants that
Ronald Reagan utilized to set in motion the "coercive" DUI legislation
train in 1982. See this link for more information on Section 410 grants.
http://www.nhtsa.dot.gov/people/injury/alcohol/EnhancedSanctions/pages/2Summary-StatesBAC.html#Anchor-41-21864
The NHTSA
study relates the following information about how these 31 states derived
their "high" level threshold number:
The high BAC threshold in
the 31 states ranges from .15 percent to .20 percent; within a given
state, a different threshold may apply to different sanctions. The minimum
threshold is at or above .15 percent in 14 states, .16 percent in five
states, .17 percent in three states, .18 percent in three states, and .20
percent in six states. In some states the mean BAC for DWI offenders was
selected as the threshold, and in other states the threshold is double the
per se BAC level for a standard offense. In still other states, the
threshold represented a compromise between a lower threshold advocated by
the highway safety office and a higher BAC preferred by other groups.
Following the lowering of the per se BAC level from .10 to .08 in their
states, New Hampshire and Arizona lowered the high-BAC threshold from .20
to .16 and from .18 to .15, respectively.
In a few states, the new
high-BAC statute became part of a "three-tiered" BAC system of graduated
penalties. For example, in July 2000, Rhode Island established different
penalties associated with each of the following three BAC levels: at or
above .08 percent but less than .10 percent, at or above .10 percent but
less than .15 percent, and at or above .15 percent.
http://www.nhtsa.dot.gov/people/injury/alcohol/EnhancedSanctions/pages/2Summary-StatesBAC.html#Anchor-Hig-13614
[The study has an
Appendix A showing a state-by-state
analysis of current legislation. It has been appended to this article for
the reader's convenience. The link at the conclusion of Appendix A will
take the reader to the actual NHTSA site.]
The stated purpose of such
legislation, according to NHTSA, is to help deter dangerous drivers from
grossly over-consuming alcohol. NHTSA takes the position that the
drinking driver knows or should know when his or her BAC level has risen
to the prohibited level. Ironically, persons who reach such an impairment
level are likely the LEAST capable of drivers to judge their ability to
safely operate a motor vehicle. In fact, as such high levels (e.g. 0.20
or more), many drivers have little or no memory of driving at all. The
ubiquitous Dubowski charts describing symptoms of impairment at these
extreme levels support the total loss of judgment that can be expected to
occur at such levels, not to mention possible control of bladder functions
and other bodily functions.
NHTSA's ability to get Congress to pass
"coercive" legislation that forces all states to either follow NHTSA's
lead, or suffer the loss of funding for state highway programs that
receive federal funds. This passage from another NHTSA site explains how
the "coercion" plan was implemented:
On March 3, 1998, President
Clinton encouraged Congress to enact legislation as soon as
possible to help ensure state passage of .08 BAC laws. On March 4, the
U.S. Senate passed "The Safe and Sober Streets Act of 1997," which had
been introduced by Senator Frank Lautenberg (D-NJ) and Senator Mike DeWine
(R-OH). Similar legislation was introduced in the U.S. House of
Representatives by Rep. Nita Lowey (D-NY).
The Safe and Sober Streets
Act would have required the withholding of certain Federal-aid highway
funds from states that do not enact and enforce a .08 per se law.
To avoid the withholding of funds, states would have been required to
enact and enforce a .08 BAC per se law by October 1, 2001.
http://www.nhtsa.dot.gov/people/injury/alcohol/Archive/Limit.08/PresInit/federal.html
These new laws will soon be enacted in
all 50 states. The upshot of such laws is that attorneys handling these
cases for DUI clients MUST be able to challenge breath and blood test
results in court. Otherwise, the hapless client who hires an untrained or
marginally trained lawyer is doomed to face higher punishment, including
longer jail sentences and longer deprivation of driving privileges. No
longer can a "bleed-and-plead" attorney provide a reasonable chance of
acquittal or negotiating a reduced charge absent knowing how to
effectively confront the State's scientific evidence.
Appendix
A
Summary of States' Enhanced Penalties for First-Offense High-BAC Offenders 21 Years or Older
As of January 1, 2002
State
|
High Br/ BAC |
Illegal Per Se BAC |
Enhanced Penalty for High-BAC First
Offenders vs. Penalty for Standard First DWI |
Statute or Rule |
Relied on High BAC to Qualify for 410 Funds FY '99-'01 |
|
Arizona
|
.15 |
.08 |
If
high BAC, mandatory jail 30 consecutive days; all but 10 consecutive
days may be suspended if screening/treatment program completed.
Mandatory 10 consecutive days for standard 1st offense;
all but 24 consecutive hours may be suspended if complete
screening/treatment. Jurisdictions may provide work release program
after 48 consecutive hours in jail for high-BAC offenders vs. 24
consecutive hours for other offenders. Jurisdictions also may
provide home monitoring program after 15 consecutive days in jail
for high-BAC vs. 24 consecutive hours. Maximum 6 months (with 30
consecutive days) vs. 6 months (10 consecutive days)
Mandatory minimum fine $250 and $250 assessment vs. $250.
Upon conviction, 12-month
administrative ignition interlock required (or court may require)
for high-BAC offenders after license suspension ends or conviction,
whichever is later vs. no requirement. |
statute |
1999, 2000, 2001 |
|
Arkansas
|
.15 |
.08 |
For administrative license
suspension, high-BAC offenders receive 180 days suspension or 30
days suspension followed by 150 days restricted driving privileges
vs. 120 days suspension with restricted license. Restricted license
can be available to all 1st offenders. Court can order
ignition interlock. |
statute |
2000, 2001 |
|
California
|
.20 |
.08 |
Court may consider BAC 3 .20 as a special factor in imposing enhanced sanctions and determining whether to grant probation and may give high BAC "heightened consideration" in ordering an ignition interlock up to 3 years.
In
counties with licensed alcohol education/
counseling program, offenders placed on probation
with high BAC must participate in program for at least 6 months vs.
3 months. |
statute |
|
|
Colorado
|
.15
.20 |
.10 |
For state's mandatory treatment/screening program for all offenders,
assessment tool recommends Level I if BAC 3. 15;
judge, however, has discretion.
If BAC 3 .20:
mandatory 90 days jail (10 days if participate in alcohol
education/treatment program) vs. 5 days unless participate in
program.
$500-1500 fine vs. $300-1,000.
60-120 days (mandatory 60) community
service vs. 48-96 hours (mandatory 48).
Administrative licensing action for
BAC > .20: completion of alcohol education or treatment
program required for license reinstatement.
If driving under the influence (DWI)
charge is reduced to the lesser charge of driving while impaired,
and if BAC 3.20, then "because of such aggravating factor," sanctions imposed
must be for (greater) DWI offense. |
<
policy
statute |
|
|
Connecticut
|
.16 |
.10 |
120 days administrative driver license suspension vs. 90 days, but
all offenders may obtain restricted license after 30 days.
Under state's diversion program,
completion of pre-trial rehabilitation/alcohol education results in
dismissal. If BAC 3
.16, offender attends more sessions at higher cost than other
offenders. |
statute |
|
|
Delaware
|
.16
.20 |
.10 |
BAC 3
.16: not automatically eligible, but can apply, for "First Offense
Election Process" (dismissal of criminal charges upon completion of
education/treatment program).
BAC
3 .20:
DMV conducts "character review" (references and interview) prior to
reinstating license. |
statute
policy |
|
|
Florida
|
.20 |
.08 |
Fine $500- $1,000 vs. $250 -$500.
Maximum 9 months jail vs. 6 months.
Judge cannot accept guilty plea to
lesser offense. |
statute |
1999, 2000, 2001 |
|
Georgia |
.15 |
.08 |
Court cannot accept nolo
contendere plea if violate illegal per se law and BAC
3
.15. |
statute |
|
|
Idaho |
.20 |
.08 |
Mandatory minimum 10 days jail (beginning with 48 consecutive hours)
vs. no mandatory minimum; maximum 1 year vs. 6 months.
Fine up to $2,000 vs. $1,000.
Mandatory minimum 1 year driver
license court suspension after release from confinement vs.
mandatory minimum 30 days suspension followed by restricted license
for 60-150 days. |
statute |
1999, 2000, 2001 |
|
Illinois |
.15/
.20 |
.08 |
BAC one of several criteria for
assignment to "risk category" for completion of treatment program
for license reinstatement: BAC < .15 = minimal risk (10 hours
education); .15-.19 BAC = moderate risk (10 hours education and 12
hours early intervention); BAC
3 .20 =
significant risk (10 hours education and 20 hours treatment). High
risk multiple offenders must receive
3 75
hours of treatment for reinstatement. |
rule |
1999, 2000, 2001 |
|
Indiana |
.15 |
.08 |
BAC 3
.15 is Class A vs. Class C misdemeanor.
Maximum fine $5000 vs. $500.
Maximum jail 1 year vs. 60 days. |
statute |
|
|
Iowa |
.15 |
.10 |
High-BAC offenders excluded from deferred judgment or sentence
generally available to 1st offenders.
Mandatory minimum 48 hours jail vs. no mandatory
jail.
Mandatory minimum $500 fine. For
other offenders, minimum is $500, or $1,000 if personal injury or
property damage crash. However, court may order unpaid community
service in lieu of fine. |
statute |
1999, 2000, 2001 |
|
Kentucky |
.18 |
.08 |
BAC
3 .18 is
one of several "aggravating circumstances"; enhanced penalty is
mandatory minimum 4 days jail, which "shall not be suspended,
probated, conditionally discharged, or subject to any other form of
early release." Must also be detained 4 hours after arrest. Other 1st
offenders must receive one of the following: $200-$500 fine, 48
hours-30 days jail or community labor, or 48 hours-30 days community
service. |
statute |
2001 |
|
Louisiana |
.15 |
.10 |
Mandatory 48 hours jail prior to
probation. For other 1st offenders, in lieu of minimum 10
days jail, may participate in substance abuse/driver improvement
program and 1) serve 2 days jail, or 2) perform 4 days community
service. |
statute |
2000, 2001 |
|
Maine |
.15 |
.08 |
Mandatory minimum 48 hours jail
prior to probation alternatives vs. no mandatory jail. |
statute |
|
|
Minnesota |
.20 |
.10 |
Effective 1/1/2001, DWI offenses are categorized
into three degrees based on the number of aggravating factors
present, which include a prior DWI offense, BAC > .20, and
driving with passenger < 16 years old and > 36 months younger than
driver. Criminal penalties if high BAC only aggravating factor,
i.e., second degree DWI, include maximum jail 1 year vs. 90 days,
mandatory minimum fine $900 vs. $210, maximum fine $3,000 vs. $700.
If BAC > .20 court also may impose additional penalty
assessment of $1,000.
In addition, court may stay sentence
except license revocation if offender submits to level of care
recommended in required chemical use assessment report. Court must
order high-BAC offenders person to submit to recommended level of
care.
Mandatory "hold for court": unless maximum bail
is imposed after arrest, high-BAC offender released from jail only
if agree to abstain from alcohol with daily electronic alcohol
monitoring.
Mandatory administrative pre-conviction license
revocation 180 days (30 days hard revocation) vs. 90 days (15 days
hard); mandatory post-conviction license revocation 60 days (30 days
hard revocation) vs. 30 days (15 days hard).
Administrative plate impoundment
equal to license revocation period if BAC
3 .20. |
statute |
1999, 2000, 2001 |
|
Missouri |
.15 |
.08 |
Upon conviction, the court must
order offender to complete substance abuse program. For persons with
administrative per se violations, driving privileges cannot be
restored until successfully complete program. For cause, court may
modify but may not waive this requirement if BAC > .15 |
statute |
|
|
Montana |
.18 |
.10 |
Court may restrict driving to
vehicle with ignition interlock device, if device is reasonably
available, for BAC 3
.18. |
statute |
|
|
Nevada |
.18 |
.10 |
Offenders with BAC
3 .18
must be evaluated for alcohol/drug abuse prior to sentencing, with
$100 fee. Also serve minimum 2 days jail or 48 hours community
service. Other 1st offenders may receive suspended
sentence if participate in treatment program but must serve 1 day
jail or 48 hours community service. |
statute |
1999, 2000, 2001 |
|
New Hampshire |
.16 |
.08 |
Class A misdemeanor vs. violation.
Up to 1 year jail vs. no jail.
Mandatory minimum fine $500 vs. $350; maximum
$2,000 vs. $1,000.
Mandatory minimum 1 year license revocation vs.
90 days.
Administrative revocation of registration of
vehicle registered to offender revoked for same period as license
revocation; hardship registration available vs. no revocation.
May receive conditional discharge,
which may include up to 50 hours community service. |
statute |
1999, 2000, 2001 |
|
New Mexico |
.16 |
.08 |
Mandatory minimum 48 consecutive
hours jail vs. no mandatory jail. |
statute |
1999, 2000 |
|
North Carolina |
.15
.16 |
.08 |
Person convicted with BAC
3 .15
must complete substance abuse assessment and treatment program, if
indicated, to reinstate license.
BAC
3 .16
considered gross impairment and an aggravating factor in sentencing;
level of punishment is determined by weighting aggravating and
mitigating factors. Also, to obtain restricted license after hard
suspension, ignition interlock must be installed for one year, and
driving with BAC 3
.04 prohibited. |
statute |
1999, 2000, 2001 |
|
Ohio |
.17 |
.10 |
Mandatory jail time doubled from 3
consecutive days (may attend 3 consecutive days driver's
intervention program in lieu of jail) to 6 days (may attend program
for 3 days in lieu of 3 days jail but must serve 3 days jail). |
statute |
2000, 2001 |
|
Oklahoma |
.15 |
.08 |
In addition to other penalties for all offenders, offenders convicted of driving with BAC 3 .15
receive mandatory minimum 28 days inpatient treatment, followed by
minimum 1 year of supervision, periodic testing, and aftercare at
defendant's expense, 480 hours of community service following
aftercare, and minimum 30 days ignition interlock device. This shall
not "preclude the defendant being charged or punished under other
DWI statutes." Note: For any type of DWI offense, probation before
judgment available. Deferred judgment also available upon guilty
plea if complete alcohol/drug program. |
statute |
|
|
Rhode Island |
.15 |
.10 |
In contrast to .10 ≤ BAC <.15,
offenders with BAC 3
.15 receive $500 fine vs. $100-$300 fine, 20-60 hours public
community restitution and/or imprisonment for up to 1 year vs. 10-60
hours public community restitution and/or imprisonment for up to 1
year. Note: .08 < BAC < .10 is a civil offense. |
statute |
|
|
South Dakota |
.17 |
.10 |
Courts must require pre-sentencing
alcohol evaluations vs. no such requirement |
statute |
|
|
Tennessee |
.20 |
.10 |
Mandatory minimum 7 consecutive days
of jail vs. 48 consecutive hours. It appears that in certain
counties with more than 100,000 residents, court may allow 200 hours
community service in lieu of jail term. |
statute |
1999, 2000, 2001 |
|
Utah |
.16 |
.08 |
As an alternative to imprisonment or
community service, an offender may be allowed to participate in home
confinement electronic monitoring program; alcohol testing may be
part of program. Court also may order alcohol or drug treatment and
may require ignition interlock as condition of probation. For each
of these sanctions court must give reasons on record if not
imposed/ordered if offender had BAC > .16. |
statute |
|
|
Virginia |
.20 |
.08 |
Mandatory minimum jail: 5 days if
BAC .20-.25; 10 days if BAC > .25; no mandatory minimum if BAC <
.20.
1st offender may attend Virginia
Alcohol Safety Action Program (VASAP) to obtain restricted license.
BAC 3
.20 is one of several criteria used to indicate longer and more
intensive education. |
statute
rule |
1999, 2000 |
|
Washington |
.15 |
.08 |
Mandatory minimum 2 days
jail or 30 days electronic home monitoring vs. 24 hours or 15 days
for standard offense.
Ignition interlock device
(after license suspension or revocation period) not less than 1 year
vs. court discretion.
Mandatory minimum fine
$925 vs. $685.
Mandatory court driver license suspension/
revocation 1 year vs. 90 days.
Deferred prosecution program for all
1st offenders results in issuance of 5-year probationary
license and dismissal of charge upon completion of 2-year treatment
program. However, court must order ignition interlock if BAC
3 .15. |
statute |
1999, 2000, 2001 |
|
Wisconsin |
.17
.20/
.26 |
.10 |
Fine penalties for persons
convicted of 3rd, 4th, and 5th DWI
are doubled if BAC .17-.199, tripled if BAC .20-.249, and quadrupled
if BAC 3
.25. The law does not include enhanced penalties for high-BAC 1st
offenders.
Wisconsin law also
provides that if BAC is known (for first or subsequent offenses),
the "court shall consider that level as a factor in sentencing." |
statute |
|
|