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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

 

 

 

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