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
http://www.nhtsa.dot.gov/people/injury/alcohol/
EnhancedSanctions/pages/AppendixA.html
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
|
|
|