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Keys to Designing and Implementing Effective
DWI PoliciesArthur GoodwinUniversity of North Carolina Highway Safety Research Center
DWI Training for MagistratesChapel Hill, NCNovember 3, 2008
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Overview
Background & statistics
What works and why?
Big picture
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U.S. Alcohol-related Traffic Fatalities
0
5,000
10,000
15,000
20,000
25,000
30,000
1982
1983
1984
1985
1986
1987
1988
1989
1990
1991
1992
1993
1994
1995
1996
1997
1998
1999
2000
2001
2002
2003
2004
2005
2006
Source: NHTSA, 2007
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Alcohol-related Fatal Crashes, North Carolina
0
100
200
300
400
500
2001 2002 2003 2004 2005 2006 2007
Source: NCAF, 2008
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Drinking & Driving Characteristics
Frequency of drinking and driving
Each year, about a quarter (26%) of the general public drink and drive
At least 80 million trips annually by drivers with a BAC over .08Arrests are rare – one arrest for every 50 - 200 trips by drivers over .08 BAC
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Alcohol-related Fatal Crashes, By Sex
Male, 83%
Unknown, 2%
Female, 15%
Source: NHTSA, 2008
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Number of Crash-involved Drivers Who Had Been Drinking by Age, NC 2001-03
0
400
800
1,200
1,600
2,000
2,400
16Yrs
17Yrs
18Yrs
19Yrs
20Yrs
21 to24
25 to29
30 to34
35 to39
40 to44
45 to49
50 to54
55 to59
60 to64
65 to69
70 to74
75 to79
80 to84
85 to89
90 +
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Percent of Crash-involved Drivers Who Had Been Drinking by Crash Location, NC
2.5% 2.7%3.2%
6.4%
2.7%
0%
2%
4%
6%
Interstate US Route NC Route SecondaryRoute
Local Street
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Percent of Crashes Involving Alcohol, North Carolina 2003-2007
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Why a BAC of .08?
Current BAC Limit
Old BAC Limit
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Why a BAC of .08?
Average arrest BAC
24 times as likely
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“Hard Core” Drinking Driver
Repeat offender or those with a BAC of .15 or higher
One-third of those arrested are repeat offendersOne-half of those arrested have a BAC > .15
Resistant to changeUp to 80% meet criteria for alcohol abuse or dependence
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Reducing Alcohol-impaired Driving
Got Alcohol, Got Impaired, Got in Car
DWI EVENT
Got Stopped/Caught
Got Arrested
Prosecution and Adjudication
Sanctions, Treatment and Monitoring
Recovery or Recidivism
Best bet for large effect is
here Too many to ever catch/prosecute
all of them
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Reducing Alcohol-impaired Driving
Deterrence – “Enacting laws that prohibit driving while impaired, publicizing and enforcing those laws, and punishing offenders”
Drivers must believe they will get caughtConsequences must be swift, sure and severe
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Reducing Alcohol-impaired Driving
DeterrenceGeneral deterrence – Strategies aimed at the general populationSpecific deterrence – Strategies aimed at those who have been arrested for DWI
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Expert DWI Research Panel Recommendations
Guide for reducing alcohol-related crashesFocus first on deterrence, then arrest/sanctionDo as much as possible administrativelyRecommended15 countermeasures
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Reducing Alcohol-impaired Driving
Got Alcohol, Got Impaired, Got in Car
DWI EVENT
Got Stopped/Caught
Got Arrested
Prosecution and Adjudication
Sanctions, Treatment and Monitoring
Recovery or Recidivism
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Reducing Alcohol-impaired Driving
Strategies to Reduce Underage Drinking and DWI
Minimum legal drinking age 21Compliance checksResponsible beverage serviceAlternative transportation and designated drivers
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Reducing Underage Drinking and DWI
Minimum Legal Drinking Age 21All states since 1987Strong evidence…
Raising the MLDA:17% in fatal crashesLowering the MLDA:8% in fatal crashes
NHTSA estimates that MLDA 21 saves 700 to 1,000 lives annually
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Reducing Underage Drinking and DWI
Compliance Checks of Retailers
Teens successfully purchase beer in 44% to 97% attemptsPenalties are minorLouisiana studyPublicity is keyPenalties should be administrative
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Reducing Underage Drinking and DWI
Responsible Beverage Service
Server training programsOregonMust be mandatory (not voluntary)Enforcement
“Dram Shop” lawsMarketing practices (e.g., happy hour specials)
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Reducing Underage Drinking and DWI
Alternative Transportation and Designated Drivers
Alternative transportationPrograms must be large scale
Designated driversEvidence insufficientMay encourage drinking
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Reducing Alcohol-impaired Driving
Got Alcohol, Got Impaired, Got in Car
DWI EVENT
Got Stopped/Caught
Got Arrested
Prosecution and Adjudication
Sanctions, Treatment and Monitoring
Recovery or Recidivism
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Reducing Alcohol-impaired Driving
Strategies to Enforce DWI Laws
Well-publicized sobriety checkpointsEnforcement of zero-tolerance lawsBAC test refusal penalties
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Strategies to Enforce DWI Laws
Well-publicized sobriety checkpoints
May be the single most beneficial countermeasure known
Reduce fatal & injury crashes by 20%Main goal: deterrenceMust be publicizedPassive Alc. SensorsCan be low-staffedSaturation patrols
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Strategies to Enforce DWI Laws
Enforcement of zero-tolerance laws
Since 1998, all states have a BAC limit of .02 or less for drivers under 21Why zero tolerance?
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Likelihood of Being in a Fatal Crash Compared to a BAC of Zero (males only)
0
1
2
3
4
5
6
7
8
9
10
.010-.019 .020-.049 .050-.079
Age 16-20Age 21-34Age 35+
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Strategies to Enforce DWI Laws
Enforcement of zero-tolerance laws
Surveys:One-third of teens in CA, NY unaware of lawHalf say it’s not enforced
Research: MD study21% drop in alcohol-involved crashesDropped 30% more after publicity
Deterrence!
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Strategies to Enforce DWI Laws
BAC test refusal, by state
NHTSA, 2005
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Strategies to Enforce DWI Laws
BAC test refusal penalties
BAC is a critical piece of evidenceLess severe penalties for test refusal = higher refusal ratesRepeat offenders have higher refusal rates
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Reducing Alcohol-impaired Driving
Got Alcohol, Got Impaired, Got in Car
DWI EVENT
Got Stopped/Caught
Got Arrested
Prosecution and Adjudication
Sanctions, Treatment and Monitoring
Recovery or Recidivism
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Reducing Alcohol-impaired Driving
Prosecution and Adjudication
Diversion & plea agreementsDWI courts
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Prosecution and Adjudication
Diversion & Plea Agreements
Diversion programs Defer sentencing while a DWI offender completes education/treatmentResearch: No evidence for reduced recidivism
Plea agreements to non-alcohol offenseUndermine the DWI system
Avoid sanctions/treatment – punishment “lite”Won’t be recognized as repeat offendersOffender and public’s perception
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Prosecution and Adjudication
DWI Courts
81 DWI courts nationwideProsecutors/judges specialize in DWI casesExtended judicial monitoringTreatment of underlying alcohol problemRequirement to maintain sobrietyRestrictions relaxed over time
Effectiveness: evidence for lower recidivismCost: less than jail
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Reducing Alcohol-impaired Driving
Got Alcohol, Got Impaired, Got in Car
DWI EVENT
Got Stopped/Caught
Got Arrested
Prosecution and Adjudication
Sanctions, Treatment and Monitoring
Recovery or Recidivism
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Reducing Alcohol-impaired Driving
Sanctions, Treatment and Monitoring
Administrative license suspensionVehicle & license plate sanctionsIgnition interlocksAlcohol assessment/treatmentOffender monitoringIncarceration
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Sanctions, Treatment & Monitoring
Administrative License Suspension (ALS)
Most states have ALS lawsResearch: alcohol-related crashes 13%
DeterrenceSwift and certain
Other issuesUnlicensed drivingHearings “Double jeopardy”
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Sanctions, Treatment & Monitoring
Vehicle/license plate sanctions
Several options—Plate impoundmentSpecial license platesVehicle impoundmentVehicle immobilization
Research: some evidence of successRepeat & high BAC offenders
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Sanctions, Treatment & Monitoring
Ignition Interlocks
Purpose: to prevent impaired drivingResearch: reduces recidivism by 50% while installedAllowed, but seldom used
Should be a condition for license reinstatementAlternatives should be more inconvenient
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Sanctions, Treatment & Monitoring
Alcohol Assessment & Treatment
Alcohol dependency is common25% of first-time offenders50% of repeat offenders
ScreeningAssigned treatmentResearch: reduces recidivism/crashesBest when individually tailored
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Sanctions, Treatment & Monitoring
Offender Monitoring
Critical to ensure follow throughIntensive supervised probationHome confinement w/electronic monitoringDedicated detention facilities
Research: reduce recidivism by ~50%Expensive, but less so than jail
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Sanctions, Treatment & Monitoring
Incarceration
Research: little evidence of effectivenessVery expensive ($15k-$30k per year)“Last resort”
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DWI Law Review
Establish a task forceOperationally soundNo structural flawsNo internal inconsistenciesAffordable & logistically feasibleThoroughly & faithfully implemented
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SummarySuccessful System / Program:
Deterrence, deterrence, deterrence!Education not enough, motivation neededCertainty of punishment (not severity) provides motivation (e.g., license revocation)
Compliance with sanctions requires effective control (e.g., interlocks, elec. monitoring)
Treat the underlying alcohol problem
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