gt

-

December 16 1990

T-HE -1980s IN R~VIEW

~OST AUDIT ANri_OVER~GHT ~ -shy -

_ -Relative to

gt1- -bullbullbull

~

_~Jj _ _ - __

SFNATE COM~TTEE~ON

(~

i~middot(~uani to Sectlqn 630 - C-pter 3 of the Ge-eral Laws as naOtt recently-amended by

Chaptef 557 of the Acts of 1986)

CONTROtLlNG THEURUNK D~VE~ o-~

i-

~

~

bull --~ r---

1-

()

- lt ~ ~ SENATE - No 19M _-~-~- -shy 3

i

I I

_ lt-Prepar~ bythe

- ~

~

~

SENXtEPOSTAUigtI1 AND - ~

gt -- rOfDSIGHTBUREAU

-~------

State HoUse Room 312

Boston Mass~cbusetts 02133 (617) 722-1252

shy ~t

r ~~ Steppe~ A ~leinDirector Nancy JWaampman~ Assistant Director

Richard X~ Connorst Counsel (Principal Researcher) James LHearns Senior Policy Analyst

Andrew J Parkert Senior FiscalAnalyst Claudia Andrea Bennettt Administrative Assistant (Research Assistant)

Hannah Parkt Student Intern

December 1990

[December

~ -

EdwardB~dWeill~ ~~~ qi~ik oiizj$en41~ State aoui~~Rolini2~8 aoStonM~ 021j3~~ - - -

bull I

Dear Mrmiddot~f~~ein~_~~lt_ lt~ 1 ~~

Pursu~~t-Jo Mi9J~ Chapter 3 ~ectio~middot~3middotas m~st recently - ~melde~J~y~Chapter ~5-1 of the~Acts of)986theSena~e~ommitteemiddot ~L~nmiddotPmiddotos~~~it ~~dqversigttt r~Pectfllix~~u~Uiits to the funSepate gt~~he follciWing reportmiddot CONTR9LLlNltrJIJEDtUNK DRIVER

1980S in review~ shy ~lt ~ T1le r~p~rlmiddot p~~id~S uP~to-ct~te ininna~~o~~~~~ middotd~~k ariYing

ratalities-~d arr~s~s~ltalsoreviews and e~aifiines-theprogress made during th~-l980s~iti~etefringdrunk driingmiddotmihe Commonwealth

y - -

Respectfully filed by the Senate Co~mittee onPost A~dit and Oversight -_ - -

~ ~ ~~~ -

SenatormiddotW bull Paul White Vice-Cha~rman

$i)~~ Senator Thomas C Norton

Senator Mary L Padula

-

I

SENATE No 1900 - ~

10 II 14

Drunk Driving Arrests 0 bull bull bull bull 0 bull 0 bull bullbull 18 bull bull bull bull bull bull bull bull

--

-

[Deeembel

shyj-

~ ~

7

middot t

1990] y SENATE - No 1900 -

be ~ea of ~ -

For a full listing of the reports on drunk driving by the SemIte Committee on Post Audit and Oversigh~

see Appendilt A I

SENATE - No 1900 bull [December8

~ SECTIONONE MEAStRlNG ~LCOHOL-REtATED FATAL CRASHES

This seciion qef~~s drunk driving a~~ the~ tt~es the changing rate of a1cQhol-r~latedfatal cras~ in Massachusetts ov-cr the past ~decade -It ses ~tW9 $tirrogaie ~e~uies~of d~ drivmg ~gh~time d~atal ~qtQ4toQil~ ~rashes and asubStCltr ihi$ gfOUP~ single car n~ghttiihefata1Ci~hes -

p~~~~+( y 1 for thep~rpqses Qfth~ ~poJ1 dru~J(dtiYi~g~me~sthat a person

ismiddotopeialmg ~~jii~tor- yehicle witli a~blQ~)~L al~ohQf middotcltgtncent~a- tqI1 (Q~~ otO~()~percent or $Ofe Thjs~tlie le~lat whicha~son cap-~~)~ aTged~~n thec~iine of ~rlvitig~nder ~~bemiddotiPfluenCeQf ltquqrlt DU~L)i M~acluis~tts ~Bti9~~Y~ thelenlJodhis offense is ~djL~irigwhile middotiltoxi~ted~(DWI) ~ ~bull~ bull lt

)f~~1~iSQnop~raie~ a ~t~~~~l~l(wiha~~ of OlQperce~t or mo e~ Massac usetts -law raISes a pr~$QIDptJonmiddottbat thep~son IS

ctrunk7 tn~factmiddot~piaemlologicaI st-lid~e~Jiave sh~wn thilt~lie risk of an autofuobile~)ashmiddotbegirismiddot to ~~ signijicantiy wit4~ blooo alcohol

conceJitraiion oL90Spercent so the sta~ftoiy thresholds are qu~te t ~~ ~ - lt shy reasona~I1e- ~~_ bull A 150PQund~rs~n would have to lirtiitJiisoih~~-drinkjhgtono

more tii-an one lJrll1k p~ihour to aV6idilmiddotbJ(ntdwcohollevei of005 peic~~~~ r~a~~ia~IQod a~cohorley~l ~~Q~ (ORer~ilt li1s ~~me i~o pound nCfS9n w01ldmiddothave to cons~me$eyendrmks ~~eN~fourhour ~~i~d~l~4rinyen~~sequ8I to oemiddotQ~ce of tltO~ pro~fWh~~k~y~ ~ three ouncegl~of yt1tleior a~welve ounce cont~l~r ot~t The average BACotthQse atre~ted for drunk driving iIi MaSsachusetts during 1989 was 017- percen_t~ - ~ gt

shy

Measui~of I)ru~~Drlving ~ -

The best measure of whether or not a driver has consumed alcohol prior to an automobiie crash isto measure tlie drivers level of blood alcohol concentration at the time of the crash Unfortunately BAC evidence is available in only half of fatal crashes in Massachusetts at this time and several years back the information was even less complete

9 19M SENATE - No 1900

WitbQUtreliblcentBA~data~~echose to uSe tw6 surrogate measures to approximate ~he nl1Qi~ of fatal au~omobiIe craShes in which alcohol was illyolved~ nighttime fat81 ~ut6mobile ciasheSand a subset

of thiS Jne8sut~~rljghttitesectrngle Car f~iatcrasti~~ (cr~hes1~tolving ~only ~~ v~hicie~ No(e~i) ~~tal ~ig~i~ime ~utQiilobiie ~rash or

bull ni8htn~ ~~~gl~~~ cr~JjJi()w~vei i-middotca~~~Y ~rdrver ~~o has 0middot~ c~I1amp~~a~~~li91PQor rYisibilify)lIiCllowettiMfi~ vohimeare also

bullbull middotltrmiddotmiddotlt imJ)orlahtcliaec(efutic~~ nighttime (lrlVlng~lt7lt ( gt -c ~~ N~~~ii~a~~~~~iem~~~~a1middottr~ficmiddots~~~ymiddot e~Re1t~~~~t~~~~~ these middotsp1emiddottmiddotW9~eyenyre~ -th~t we use t9 st~dy d~4nV1~gp~ttemsIn faci~~6ut exa~tionmiddot ~fh~ ~cordsIrommiddotthemiddot ~~~~use~tsJ~egistry ~ ~ ltQf Mo~~~y ~~~~o~ ~t~~l~r~l xea~ ~~nrrrin~~ (1l~ d~yers -i~ car - crash~J)c~u~g~~Veen~he ~o~ 9f-6()OP1D1 ap4middot5S9 am are~

2- c ve~iileJyjtci~ti~~~-p~sitivel~~~JSofampl((Od aIC9~breoricentration Theidatfi)lisf1~p beiw~nfa~al~r8shesmvoivjhgdrilnk -(lovers and the tiq1centqfmiddot a8pound~ re~~ci~d in~ation~ ~ta 9f 19a9(~ ApPendix

if Bgt~ Accor4inSI(~~~se nationaldata inore ~lialhaIfof fjtamp11Ylnj~ied bull middotdrivelillfcraSJi~s~middoto~~mngmiddotbetw~en 9~~~Diand S~ ~Ip~ ejcUbit

_ BAC~lJ~)~rmiddota~r~~~~o~~riie~tB~tweeiimiddotmi~~~t~~~~~~~~~ the~ number nses tomiddot 70cperte~t Moteover the datamiddotshow-thatm smgle

car crasneS occUQlng behvee~ 900 pm and 559-am 70middotpercent of Jat~iyi~jiired~~versexhi~HaAltsat~rab~vfO10~rceJi~2

-_gt_-~ lt~lt~~~ _~-) + )~f~ gt - ~lt _- -- ~_ --~L--

Nighttime Fatal A~tombbUemiddotCrashesmiddot bull Igtatmiddoto~~ightfiriie f~ta1-aut~~obile~rashess~ggelttlia there has

been amiddotaecreaSe~indrUilic(Jtiving inmiddot Massachusei~ssi~~e~1979 For thismeasure~ w~ an8Iyzed th~ frequency of nighiti~e(ffom600 pm

- to 559 am) ra~M a~toriiobne crashes during the 1980s-We also compared the~Umber ofnighttime fat~ crashes wiihthenum~r of

dayti~~ra(a1 cr~h~s(se~~fi~re I and AppendixC) Comp~ng nighttime ~rashes withdaytime crashes coptrols for

overall changes in driving behavior changing road or weather conditions from year to year and ~hanging characteristics of the driving population The extent to which nighttime fatal automobile crashes exceed daytime crashes may be an indicator of alcohol involvement Moreover the extent to which trends in nighttime fatal

2 Facts Insurance Institute for Highway Safety 1990

~

- tmiddot

-~

~ 84 46 8~ middot~8l t 8~ ~ 89 Y~ar (

J bullbull __ ~r

~

SENATE- No 1900

--shy~--~~~~-lt~~~- gt- ~~ ~_-_-~~-~_~- --=shy

~~lt ~ middotmiddot1middot - - shy gtr~-

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$--19 -eO~(81 82 shy ~

~ tmiddot

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10

-I -

Single CarNighttim~middotFatfCrashes Datil on nighttime singlecarcrashes also sugges~that the~ebas been

a decrease in drunk driving since 1979 For this irieasure we analyzed the Dumber of single car fatal crashes occurring between 900 pm and 559 am during the 1980s (see Figure 2 and Appendix D)

~( r- ~ ~ ~lIlelry olotar Vlllltle -

~~ f~ Poet -~n ~_nd Ove ~O

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~ ltII bull - ~ s ~ -

jr~-crash~s do noisect~~~ro~middottr~~dsjn daytime fatalcr~~e~ rit~~ alsobe an bull + -indicator of cllilnging rates of alcohol involvem~nt

---- c bullbull

~middotmiddot~~~crmiddotmiddot r

-~~i~tn~~~~rmiddot middot~V) 2t- if bull Nightt~~-f~tal ~r~~es reached an all-time highin(f979 w~th a

t9~~lQF6~9fatal crashes but the numQerQ centr~slies declined dupng ~Ii~~~x-t 4e~~ulet reachin~a ten year1owof)S6 crashes in 19~9~ a 43perqentdrop _ ~r

bull Wille nithttime (fita crashes were declining betwe~ll 1979and -1989t theDumberofdaytimefatal crashes rose 14 percent shy

c

11

bull

bull SINGLECAR NlGHTTlMSiFATAl CRASHES ( 900 pm ~659 middotmiddotmf shy ~gt 1917--1989middotlt

r - ~ r ~ -

-

I

~ - ~ 1101__ ~~~~ _-~~-Lo-~L--~----_I--~~_ ~ lt ~ 78 71 oeo 81shy

~) r-~ pound~~~~~jtS~~~Lt~2middotmiddot ~ gt -~1oJ ~It ~ 0- 12180

~~~~~ [lt20 gt ~ $ipgl~ c81 DJgh~tiple fat craShes froni 336 crashesin 1979~

io~iin1989aj4Z percent decrease bull ~~t lt~ ~~ ~~r ~

shy -- ~FtaI~CJa$hRata~ -- middottmiddotmiddot

~e -i~~ Ji~ ~trol f~r middot~~~gesJn the numbe~ otmiddotdriye~$on the to~ we f caloulatecfthe faUimiddotciash-nue fOt everYIO~OOOlice~ cldVeIs both

(otMttinefattiicrashes and for siDgIe~ nighttim~ fatar~aslies -To~~~hether t~tCbasbein areducjonmfatamplldeseveJi-among--die y(iungest dri~en we- collect~ more ~ltCifiC d~ai forone~ofthe ~urtpga~sect JJ1~8s~~S ~(drunk dyenng -D~ttim6~fi~-c~ -Cr~hes middot-ACCtltJi~g totoe age of the automobU~opera~01linyqlved We e~aminect two agecohorts of drivers driyeri whowere twenty yearsof ageai)d driversmiddotWho were nineteen years-_ofagt and under and thenre~Wed the frequency off~tal cnlshe~~Qry~u~dri~~in 1979 198j~ 19~5gt and 1989 To account Jor poptdatlon c~ges we converted the delta to a rate fOf every 10000 licensed driVers (see Table f)

-

~ i

f J

-

f shy

r- - ~~

-

middott

i-

- - _ _ shy ICe]FDiding -- - shy bull - -shy-

tmiddot ~ r ~ ----- bull

bull ~~h~ ilu~~(of njsbttime fatal c~ashes per te~ tho~and licensed driVers dropped S~_percent from 179 crashes in 1979 to 084 crashes pe~ 10tOQO licensed drivers in 1989~

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middotmiddotbullmiddotmiddot

~

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1990) SENATE - No 1900 13

bull Thef~ticmby~~fnighttimefatal crash~ a~~ng~teenage drivers dropp~d sh~iy(approximaiely 51pecent)middotbetween 1979 and

1983 - -~ ~ ~ ~ - ~ bullbull FrotPmiddotJ979 t~l1~~~tth~middot Dlght~iD~ fa~aI~t~~ ~ait~d~eased 47

pet~ltf()rtag~~middotmiddotand~5~rceQtfoiJw~tyyear oJ4 drivers bullbull - bull middotmiddotmiddot- bulltAmiddot ~-f- t _ bull bullbullbullbull ~- r f bull - bull bull bull

Iii 1919esjliJecarmiddotnightt4D~Jatalciash-rateforevery 10000 ij~~~f4ri~~~~~~middot O9S~by~he en~Q~ ~~~~ t~emiddotiate had fallen JomiddotO4~~per -l6~Jl~~d dJjvers a52 ~rcentdrop ~

j-Ji-~~(gt r middotmiddotmiddotWbt~ebullbullbullStiQ -~

~ r~ (middotmiddotI-_$~~ -~ ~Jr--lt- bull ~~ lt--~ bull

middotThe~lw~s1rrogt~middotineaSuresmiddot of middotdrunkdriVingmiddot bQtb suUest that fthere~~~Jiie~ middotmiddot~libStantial deCr~~~in aicori()lreia~a fatal crashes middottsin~~1~1jr~foiiui~teJY~ ~lt~rge P~ ofjt~~~d~iine~ocCJJt~ ~arly

~Qo Cf the deqMtS e~flyg8ins did not erode over Cii()he i~niaigderJof t~~ ~l~e~eveniJ1ougli~lj~r~ was sigiilil~~( growth

middotmiddotmiddotmiddotmiddot~middotildhe~i1eofdl~ dfiyening populati9nan~ middot~middotmiddotsl~lcentampD in~~e~ in the YIli~b~~1~e)nil~~rlye~~ In f~Ctpre~aiymiddotfig~s suggest that r~o~par~d~to-l98~mgbtti8)e fatal crashes~~ontinue(H~ Qeclirieduring tli~fuSt~itmiddotmpntl)~fJ~ ~ middottmiddotc lts~middotmiddot

Putjai~elti ~~C~ ~at~on~ (~ta indc~lei~~t M~sachusetts had areI~iv~~etyrecotd~tJi~~ was ~ongthebestiriJhecountry A~ong

_ ~~~~ JJor1bull s -1_ bull bull

~e highlyj)(jpul~~d)lidustrial states onlyNew middotJe~ey hadmiddot a lower ni8bttjmeJai~ciaSh t~te than ~~sachusettsmiddot 1 ( ~

middotRegaidles~ oftlieIeiuction in QighttiDicentfitalcrashea among young drivers since 1979~ rialion81 dat~ iridicatethat thedrivers whomiddot are

_ ~ - ~ prohibited~ by l~ (9in purchasin~ or beiJlgpublic~yserved alcohol are still fo~r time~ JtiQr~ likely to be involyed ijla nigltttim~fatal cr~h than the rest of the driving publics WithinMaSsachu~tts in 1979

these operatQrs made-up 10 percent of the dnVirigpopulationmiddot yet accounted or34 percept of nighttimefatal crashes today they make up only 9percent of all drivers yet they produce 30 percent of all nighttime fatal crashes

The states driving population grew by 614138 persons from 1980 through 1989 and over 90 percent of that growth occurred in the

Acxordiog to figures from the Department of die Registry of Motor Vehicles the number of miles driven in MassachUletIs rose from 3S2 billion miles in 1979 to 442 billion in 1989

DrunJc Drillinl Enfoc~mmt in MtlSsachuutu HtIS the Effort Staed Massachusetts Sen Ie Commitl~ on Post Audit and Oversight November 1988 See panicularly discussion on pllges 6 to IC

IRS Facts 989 Insurance Institute for HighVi~y Slfe1y

gt~middot14 [December

80 81 82 83 84 85 Fiscal Year

MA Dp~tllnt of Rftnu 7180 Snet Po- Audit andOftloll 12180

Flaur 3

- -1990] -SENATE -- No 1900 15

-~- ~

SECTION TWO LEGAL AND AD~TRATIVE CHANGESAFFECIING DRUNK OiuVlNG

-~ -DtnuNC THE 1980s- shybull bullbull bullbull _ - I - bullbull)~ ---~ ~ ~~

lbis ~oJtre~i ~vera1 of~~e mainlegaI ilJ1d administrative _stc- ~~~~Jr(~~cri~IC-~~l~~toco~ttQi~~titk yenvi~~ It reviews -shy

~CJ lA~~dnnJtWamp_agetmiddot the developmen ()f re1)abilitation proshy-it~IQ$~aarchang~jff~~g~n~ties andothermiddotCAuiliermeasures

-~ ~~~~~~~~~ flfgt~ gt ~ gt ~~ bull ~ ~-_ J ~~~~Af~~~beight~~~middotpUi)liccon~rn abQutdnWiig and drlVmg wIraquo~h~Vi~~~ppar~n(iD ibe l~te 1970s andcentar)y 19805 iUpro~pted -shy

ii bf~~~middot~pUbli~p~rceivcent to ~ a draU9~~~ incieasevinmiddot al~oholshylt rela~e4 -rl~ ~r~besamongt~ageIn 1972tt~ st~te ~id penDitted

middot[-f~igttlicdjrSt~(fme thetale of-aicohol~~ pCojl~elgbteen Y~arS of age ~~ otmiddot91aef6 Fbe~gtpublic saw ihis change as a stimUluStoatco~ol-retated ~cr~e~lt~~- ~~ lt _

lt middotWlt~t waamp_l~ceiy~tQ be an i~rease m~he incidence ofdrunk - dri~g~paitisUhirlyamongyoung people iii the 18tC(19708 lCd~~ the

_ltf esbtisnment ~of action groups such as Motherst AgaiQst Drunk ~gt- Diwiligt~ADD) and StUdents Xgainst D~ IgtriVingiS4DD)

middotfTIitse aeti~i$f8roupsmiddot~eie- able to gaiD -media~~ntiop iii a ~aDner ~middot~ltmiddot~Jhatdwane4the public middotattentionmiddotto earner efforts to curb drunk

lt driVing gt - - -

~ 8Ymiddot1979~middotd~nightti~emiddotmiddot(atalcrash rate of dnyer~tw~tyyears old anctunderwas~almo$fflve times the rate of that 9fall6ther drivers This trencl~h~roUghlYmiddotmiddot alarmed the public 8ri~ a newly elected

governor had made campaign promise to changetheage at which a person could purchase alcoholic beverages In 1979the drinking age was raised to twenty years old This was the fiiSt ofseveral legisshylative initiativesdesigned to reduce drinking and driving in Massashychusetts The drinking age was once again raised to age twenty-one in 19848

6 Acta of 1972 Chapter ISS Section 2

~ Acts of 1979 Chapter IS Section 6

bull 8 Acts of 1984 Chapter 312fmiddotmiddotmiddotmiddot

16 -(SENATE - No 1m [December

shy 7- - ~

Tb~ Impact of Legal ~bang~ ~gt-~) Throughoutthe i980s the state made s~veralmore legislative

changes t(fre4uc~ th~ incidence otdrunk driving With each of the legislative changes there wasa noticeable decrease iJidmnk driving activity In i982 the state increased penaities for drunk driving including makiilgjall sentences mandatory for a arletyof-offenders10

When the impact of this act appeared to bedeclininJ by 1985 and 1986 the state passed The Safe Roads Act in the later part of 1986

bull For an excellent discussion of past efforts to deal with this problem see Deterring The Drinking Driver H Ross revised and updated edition DC Heath and Company 1984

Acts of 1982 Chapter 373

I bull

middotmiddotmiddotmiddotf i f

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beh~viq~~middotl

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bull ~statisti~y~o

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~NATE - No 1900 17 - -

~ Thejn~~nto(TheSAre ROad~A~t was to make adjuditati~nfor drunk an~tmiddotmiddotmak(Pe~aIties more middot~~middot~bl f~t as recentmiddot

anaJYl~~~tof~d~8teth~middot~sutanc~tHatjudamp~entwQ~ld~_swift anti~e~ri is th(~O~L~n~~iye Yay t9 b~ve C JJipact ~n p~blic

~~~ ~lt -Yo ~ ~ gt lt~ loJ~~l~~y1 ~~Os~publiccoricepi a~o~tdmiddot(lnkijriyeningalS() affected

themiddotat~fdes~~(ineP911middotmiddot~4 tli~ltc~uits~~t~i)Yete~atlve ~~4~~k~~~tiyen~~ )~i(jii~r ~oi~pletpeni ne~rsfrae~~sUcl1 ~ tbe use

~gmiddotmiddotmiddotoa~ltmiddotbl~Cksmiddot and t~e 4~fjsi()n ~y tlie-Al~o1ionc B~~~tg~~~h~~lComm~iop 0 cuit~ ~~a~ho~~_ inD~ arid re$iauTl1ifS1i~~Qr~bvet middot~coJJrtmiddotmiddotdeciSio~s i~g~ng the liability of i)i~If~(di~ts)or~~iVing dnDJier-s Wh~) w~resugtseqiently jnvolJdin ~ authmof)J1~~t8$lje~ middotht4t ~ siPmcant imp~t on the willingnessmiddotor cortimercW est~blis1iIDentS~ middottomiddot serve aicohol1c ~veragesmiddotmiddot without

~ r~middotmiddotltmiddot ~ t

~-~~~ ~ ~ ~ ~ middotfmiddot

middotbthermiddot~9wlteftn~UreS ApiDStmiddotD~priverS _-~_ ~~ ) p $ ~ p -

Inere~gpubli~concemmiddotapout drunkdriving alsolcentd to a~tronger

fOcuS-bnihe c(ninterii1eaSutes~aicen to limit druDk~diivihg during the - _ HI _ ~~ 1 - bull

1980sinese-ine~i~ tyigti~ally fall into ~hreemyenn categ~ries gt ~~uilkdtiveis olt~~g eVidencemiddot thil~middotth~s-e d~Veis ~

~tuanydrunk ~~rpe~aliiingdrun~ drivers ~ i_ ~)r0 ~

Dr~tirivJDI ~ri~s ~

jUs~ ~~the s~atjsilcsmiddotdein~nstrate a dr~p in drrinkdriyh-tg~actiyity iiid)catethafdrunk drivingarrests fell off dildng the

past d~caa~A~~rdjJigmiddot ~t~~ t~e middotNatioJial HighwayTtaffic-$8fety Admipl~iiati~iJ~middotmiddot~e natiQq~t peak in drunk ~ijyqig eJifdrcement

activityoccurre4 in 19~~when aInt0st 2 iliiJli~ii Pt~ple - approxjmiddotmately ti2 percent~o the nations li~enSeddrivers ~ were

middotarreste4IoJmiddotdrtintltdriving Nevertheless t~e Natio~~rligh~ymiddotSafety Admilfs~ration~stimateS hat even during the p~k years of enforcement police nati6DaIiyapprehendedmiddot only 1out 0(500 people who wercdriving under theinfluence of alcohol atamiddotgiven time

According to infonnatiol1 frtgtm the Office of the Commissioner of Probation enforcement in Massachusetts peaked a little later than

Nichols JL and Ross HL Th~ Eff~elivtM$$ 0 Saneiomor DWI Oftndns paper presented at the International Conference on Alcohol Drugs and Traffic Safety October 1989 Chica80 Illinois

204 CMR 403 adopted December 10 1984

-~

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--

~

lt

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01

19 bull 1 I

39~9i2 - UOS~ 31~1700 40251100

79l

180

SENATE shy No 1900

I ~

~ IS74 - 2S87 I

291C)ooQ - i 36414oo

~

DUlIAreSh ric~sed Driv~n

1990]

Amiddotti~t Rate per ~ ~ l~~DriYers J 1~B7 shy 710 ~

r - 1 ~- ~+ - - - ri

- SO~e ~n~tC P~st- _AUdit and~v~iBht

r-~-middotgt7~ bull ~ ~ ~ 1~ ~ ~

i~gsc~ gt middotOL gt bull bull _ Themes~iratcdncrea$ed263 percent from 1970 to 1984 from

~ shy ~- iai~~lO bull~ariestsptriOOoIicen$eddrivers~~-_ ~ _~ ~~lmiddot ~ ~ gtshy bullbull - __

_ ~ - Be~weiit198()-and 1984 -~he drunk driving arrest raie rose 47 ~ bull ~tf1~t 4 _ bull bull bull - 1

pei~nt ~9ntiiluingt~e~PQsitivetrerid established-d~g the two S p~e~~pifii~yearpeii~ds - shy gt - -~ S~t~84~~arre$ti~t~ h~ d~cIined 24 percent

Tfi~~ii~tff~t~~t-i~OOo licensed 4rivers ini989 (791) is only gt 1pound~nffil8her tbijiit~e i98() rate~_ -T

_ ~middot~--I ~ - 1 _ ~ bull bull bull ~ thF~ ~~~com~tmg explanatio~ for the 24PerCent~c=Crease in drnlt~t~g~Cyentivitysince 1984The t-rstexp~tion

favoi~qbYanu~ber-ofpoJice admiJiistrators is that P8st~nforcement and acfjap2eindQver bChavi()r ~ responsible for the CI~rCaSing rate of aq~$(~~ According to th~ theQry there are f~w~~altestsbecause past enforcement efforts-have successfully deterred d~ driving so

that there are fewer drunk drivers on the roads to apprehend There have not been any local studies to test this explanation~ but few safety experts have been willing to accept this type of anecdotal data on face value

19

1shy

1

1 I

~_ bullbull

~

j -

SENATE ~ No~ 1900 December

Acts of 1961 Chapter 340

14 MGl Chapter 90 Section 24f

1990) 1 lt SENATE ~ Nol900 _

-~~ ~

~i -

PenUllog Drunk Drivers

The Massachusetts system for penalizingdunk drivers includes middotlicense suspensions or revocations fines education and treatment and incarceration The penalties are graduated into three main steps such that theybecome increasingly intensive and they are determined

IS Digesl of Slale Alcohol Highway SafelY Relaled Regulalion eighth edition National Highway Traffic Safety Association

11

- ~

gt SENATE shy No 1900

-

~

[December

~

gt

See Acts of 1982 Chapter 373

c

13

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bull ASS1~~~nts-to middotir8t offender programs hv~middot d~crea$ed 20 perceilrsincefis~aLyear 1985i mirroringJh~~~hllng auest tate

bull A~sigriments to the second ~ffenders piogr~~h~lV~deereaSed bull lo _ (

but te-middotdeclirie~has not been as sharp-as fQrthe first offender

(- ~ J)rosr~~ -~ imiddot cmiddotbullbull ~~-- r middotltThe Departme~t of Public 9f Health r~portsltthat while the

frequenCy o~adtni$~i()ns to th~ 14-day trtmen~J)r()gram has middotdecreasedover the last~five years~the demographic cJtaracteristics of fitstand $~cond offender drunk dovers have rem~ined fairly cOnstant includingtheir aver~ge age (approximately 31 ye~s)middot Furthermore inmiddot 1989 when there-were 33709 arrests 2550 drtink drivers (76 percentwent to jail in 1984 when 39912 drunk drivers were arrested 2006 of them were sent to jail (50 percent)

bull bullbull bull

17

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~ middotc~)middotmiddot ~

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accur~~y

SENATE No~ -1900

[December - -1

sECnorit~REE I~~VESIN ~IMPLtEi)CONSENT J - po ~ _ --- ro bull

Int~ s~ctio~iof- themiddotr~o~ve 10~ka M~sa~hu~itS~ experience withf~tiilg for~lPt~xication~ nctthe implied conselli law Wcentthen e~amirttlieinw~~f~e~~~p~6(J~~ li~ on~~ain~s aDdmiddot~nmiddot

Ul~eqr~~ineDt ~syst~in ~a~~()Y~~1detltifY thieemiddotprD~~erils with - ~hcentJa~~s~tnp~~~atiQ~th~q~ngmiddoti~reflS~middotrat~1ui1ohgdet8iJl~s

middotmiddot(middot~~middotfP~~~q~I~~ac~~e~~~t~cen~e~sus~~i~~(~h~~~ ~hp ~emiddotil1e- test and faiJ~middot~iidfinaJI~tl1flack9fjdequat~iecoidsmiddotQllwhether the test was iidfu1nister~accepted middotormiddotfCieetectmiddot gt

~~~~jgtt~middotc~-ltmiddot TJ~(~ic~aeY9f1Ji~Tests ~

~7 bullbullbulll-~ - _ bull bull _ - _

Th~i~ middotis-inc~~~g evidencif that th~ tcentst pr~ltUresin place in yen$~U~~t~~u~e_lair pJa-yXor ttSt)~bjects~ft~ tb~tmiddotth~ infrared

iDaelJll~~ reqqired by the~w are accuratecanci teliable In what is ~~~~pg~I~~~~k c~e-in~~e fi~Ilt4Sat~ 6fJV~~Je~se~ v Andrew l)omiddot~m~ et ~l~Jle Supreme Co~ of ~~wJeJSeyhel4~tpat ~ch tes~~

~~c~~~~~~~~in~ ~gt ~ ~~~~ gt ~ ~ We-areconfiaenn~tcontInti~useoftheb~atfW~rwjllnot lead to unjustmiddot~~~vleti9~-The ~le~~ ~deii~ IS m9tet9ii~1~ive now t~tve(iliat ~e cbilQCe$of-ove~ti~m~tjonmiddot are ~Jaotdnarily ~

sm~l1middotmiddot middot ~fTbe b~ath~~er ismiddotmiddot)i~asSedin -i~ cQinbined pr~~ticalitymiddotmiddotampil4 use~~ssh em OJ he low side 111 a sl8nficant nu~ber ofcases in-order not to overestimate bloodmiddotatcoholin the

middotmiddotgreaies~j)ossibenumoer OfC8Ses~ Wi~e~ ~Vinlted this ~jusifiable middotmiddotiifltgtr4~r to furthermiddot the legislatures wilt ~rid middotmaiDtmefficiency in cmiddot

oiu~ystemQtJustiCeP ~ _ lt1middot~~middotmiddotmiddotmiddot ~t~ ~ ~ -~~ - -- ~

TheVqwnie tilSe is especially valu~bl~ ~ec~use ~lt)stl9f tJte leading expert~lp the ftefd~pPearcentd and teslifiea5othaftheNew Jersey court had tliebeilefjLofan extraordinarily comigtlet~ ~cord uponwhich to base ~its decision The Downie case reduCes concerns about the

and ~reliability of the breath~test middotJlJachines ~urTentIy permitted by MaSsachusetts law ~- ~

The ieliabiii~y of current technology is beco~ngless of an issue Deliberations jQ Massachusetts can ther~fore f~cus on whether the state wants accurate evidence of alcohol impairment and to what extent it wants such evidence not how the test is administered or whether it is accurate

Stall of Nlw Jersey v Andrew Downie e al 569 A2d 242 (NJ 1990) page 251

25

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bull ~J~i~t Ri ~ gt i~mrmiddot1 ~ middoti~~~~ lt~~~~~$ ~~ ~~~a~~mber) (lIe~fet) middotSiilpeDsl~as ~UI~~its~Cn$ 1

- middot~I986~ middot38iO~9middot - 9449 middot2S NA J I middotmiddott~~l~ t~a8J66o c ~~ 13510 36 2608C)middotd

middotmiddotI~~~J~ i~~~~l~ 3~C ~~ml

1middotgt~~atePcrst A~(iifil~CI oVCrsi8h middott cStima te ~ ~ -I

sect~lIlc MA~J5~centlsirY ~pdotor ~Chi~ICS _ ~l I ~~ gt1 i

~ 1

Ij~~~~~~ qgt ~~~ceJ986~middott~ep~rC~iltage of pe~onsr~fus1Dg~o J~e a breath

orJ)loOd~tes( aft~r arrest for drunk dtiving hasJncreased 44 - p~~~n~lrising f~Qll2S percent to 36 ~rc~rttlt

middot ltOut of33imiddot7~ p~~pl~ -yenr~ted -fo~ dru~dri~i~gj~Massachushy 0 middotsettsciuiiJig-198~12279people refused to take abfeath or blood test -and~()nly U~639 actually took a breath ormiddot bl~od test arter ~ JliTestmiddotmiddot -

bull Registry ~tMotor Vehicles and Office of Alcohol Testing reports do not indicate and cannot account for whether or not 9791 of the states 23918 dnitlk driving offendersin- 1989 were offered a breath or blood testand whether they took or refusedihat test

26 SENATE - No 1900 [December

Ie Of the 11639 offenders who consentedmiddott~ a ~~eath or biood test in 1989o~y6998 haeJ theirJicensessus~middotnded under the provi- sionS of~he-~aamimstraiivePerse role

There ~r~-three~~se~o~ pr~bienis jItlieM~~~b~~etts implied consent ~trategy Firsimany offellders are tefusittjto take a test

~ 1~~~~~~~1~~~~ ~t~~ t~1~~4la~e~~e~ fir~t offe~ders ar~~~soretusing~o t~eth~eSF D~ng thepcriodlt

froQll9ampampto-1982)ii~)1mrber of people refuSing teiake the test has rise~ 44 p~r~ent froJl2S percent of those aITested1t) -36 percent of

those arrested gt ~ - bullbull

~ The iniat~forinfor first a~d ~~c~rilaquo(offe~(etproampraritsoffermiddot middot8ddtiQna~vid~Jice- diat the proportion or-clients refUsing middotto take a

~br~at~ tcentsectt~~ter middotmiddot~IT~~tmiddot ~as risen sharply Alice~ t981 andsecond p~ngers il~e)nu~h~orelikeryo refus~ to take~he middottestmiddot During

calepdar ~~rmiddot1989~ percent ~f the second- offendcrs ad~tted to the i4-ltiyiJogran1reported thalt~ey hadiefus~to take abreath

~ bull 0 bull _ bull bull

test c()mp~ to a 33 percent nite for flr$t~offen4eIS ~ The CoDinu)nwealtIj therefore~ must prosecute 8Imost two-thirds

of its drunk drivers without scientific eViden~ - cd imp8irment Mo~eover~J~e pr~s~~i~penalty structure is~i~~ffecii~e~I~ca~mgthe

vast majorityof dninkdrivers to ~onsend~the ~r~th t~~t Second roughly oile-tbird ofthosewhp~taketb-e bteatbmiddot test and

arefoundtohave alllgh blood aicohol conce~tratioiaren~(getting their licenses suspended Of the 33709 peopie ~~lor drunk driving in MaJossachusetts duIjng 1989 onlyOne-third were documentedHo havetaken a blood alcoh()tteStaftetartestOf those who were dricume~ied to have taken the test (rQtU the Commonshywealths testing experience we could estimate tha~IO800 of these individuals would have had a blood level conCentration of at least 010)8 However datfl from the Registry of Mot~~ Vehicles show that only 6998 persons were suspended under the middotmiddotadininistrative per se provisions All 10800 of those who would have tested above 010 percent however would have been subject to an immediate license

Accordinl to data from the Office of Alcohol Testing only 63 percent of those persons tested durin fiscal year 1989 and 62 percent of those per50m tested during fISCal year 1990 recorded test results of

BACs below 010 percent Given these results it is likely that of the 11639 tests administered in 19Z9 10800 would have BACs higher than 010 percent

SENATE - No 1900 27

suspension 81 aiJai~~e~~there is no ~1earieasonfor the states failuftnO suspen(J the licenSes of Offenders Th~third pio~~em W(~hthe statesimplementatlonoftbe implied

~ consent law is~lli~p~o~ie~tr~cor4 ~eep~ng p1cent riu~ber of people who refuse thehteath~iYi~fan(fthosewho takethe test~c~ouni for only10S perCcent~t9(tat~~~~irestslt ~~very ~isl~rbi~g t~~t_ the state ~l~0~acc9ui1~fqr~t~qpL~Opercent ~I itscaSeSltt~~ ~ gt~_

Sorn~Qf-tht(~uiirepq~~d casestn~y~ hav~ bcent~J)middot~p cit~~mstaJices wheii~~~poli~~iriad(~aij~~ts gtwithOut offerbigtbe tesi niis oCcurs

-J ~ r middot~middotmiddot-i~ middotr~ - __ r - - - -

wh~~ ~secteCp~~~ofic~r ~~np( ~v~ljPJ~ t~_ ~it_n~~~~h~ ~esliHr wheremiddot thercent it~no qualifiedbreadttest oper~tor prese1itcFhi~oC(ursmore

middot~~ f ~ ~ bull - bull ~ bullbull J - - bullbull ~ _ j J bull bull _ bull bullbullbullbull shy

fr~qu~ritlYin_~PIaJ~r~pat1ments Tlielaw r~quir~llfa(iirtJl~)vent

thatt~~lis~~J~fu~~~gta-~cp~~ical test- wh~n~qqe~ted tli~ officer L~c Jiii~gfli~treq~~sfsli~lf~piJllediately prepar~ a~ptfenlepqFrof s1ch ~ ~ ~ jrrefusaIarid~ thtfthis r~phifmust bet end()rseltt6y~tliirdpeison ~who -~~-~~bad i~iiesseltl jJ1~refu~Waowever~hetej~nsect Way Q~o~what _-

r ~ tOpartQfJhe 30middotpe~ntojdie unreported casesis1111Ci tQ t~i~Teason~2o lt gtj q ~ltmiddotgtgtigt lt ~-

~ ~i~ SECT10N FO_~ s~~~~~y ANDRECO~~~~J~r~~N~ Cle~rly the G6Q1ni~n~ealths comQ1itDen( ~~diu~~ driving ~iet1tnce hasti~n i~~oya~~~e s~bst~tial~a~~ sfifssf~~Glt~n~es

10 law~ and recentc()urt de~ls10ns aff~tm~ ltabiAty~for d(Unk dnv10g -accid~iltShave h~(f asigl~ant influence on red~~iiig~r11nk4riving as diq iip~reAAe~rl~welif()rcenient The Com~dilw~a~li~s~~uccess is

also ~itti~utahdo strongpuhlic awareness andconce51L~(ltliedeshydine indrinkll)g~~and thechanging demographicsOf (lie dpving popuI~tion middotfmiddot

Alsltgt in spiie6f noticeable decreases in sevetal~n1nk driving countermeasuresduring tlle latter years of the decade state efforts to deter and identify drunk driving during the years 1980~to 1989 far surpassed the efforts made in the preceding decade (see Table V)

9 MGL Chapter 90 Section 24(1)

20 The Commonwealth must address the problem of circumstances arising when there is no witness to a test Just as local fire departments frequently rely on mutual assistance from other communities police departments must make arrangements for mutunl aid cr for centrJlizeltesting of drunk drivers especially in the more rural areas of the state

~

bull --~ r---

1-

()

- lt ~ ~ SENATE - No 19M _-~-~- -shy 3

i

I I

_ lt-Prepar~ bythe

- ~

~

~

SENXtEPOSTAUigtI1 AND - ~

gt -- rOfDSIGHTBUREAU

-~------

State HoUse Room 312

Boston Mass~cbusetts 02133 (617) 722-1252

shy ~t

r ~~ Steppe~ A ~leinDirector Nancy JWaampman~ Assistant Director

Richard X~ Connorst Counsel (Principal Researcher) James LHearns Senior Policy Analyst

Andrew J Parkert Senior FiscalAnalyst Claudia Andrea Bennettt Administrative Assistant (Research Assistant)

Hannah Parkt Student Intern

December 1990

[December

~ -

EdwardB~dWeill~ ~~~ qi~ik oiizj$en41~ State aoui~~Rolini2~8 aoStonM~ 021j3~~ - - -

bull I

Dear Mrmiddot~f~~ein~_~~lt_ lt~ 1 ~~

Pursu~~t-Jo Mi9J~ Chapter 3 ~ectio~middot~3middotas m~st recently - ~melde~J~y~Chapter ~5-1 of the~Acts of)986theSena~e~ommitteemiddot ~L~nmiddotPmiddotos~~~it ~~dqversigttt r~Pectfllix~~u~Uiits to the funSepate gt~~he follciWing reportmiddot CONTR9LLlNltrJIJEDtUNK DRIVER

1980S in review~ shy ~lt ~ T1le r~p~rlmiddot p~~id~S uP~to-ct~te ininna~~o~~~~~ middotd~~k ariYing

ratalities-~d arr~s~s~ltalsoreviews and e~aifiines-theprogress made during th~-l980s~iti~etefringdrunk driingmiddotmihe Commonwealth

y - -

Respectfully filed by the Senate Co~mittee onPost A~dit and Oversight -_ - -

~ ~ ~~~ -

SenatormiddotW bull Paul White Vice-Cha~rman

$i)~~ Senator Thomas C Norton

Senator Mary L Padula

-

I

SENATE No 1900 - ~

10 II 14

Drunk Driving Arrests 0 bull bull bull bull 0 bull 0 bull bullbull 18 bull bull bull bull bull bull bull bull

--

-

[Deeembel

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~ ~

7

middot t

1990] y SENATE - No 1900 -

be ~ea of ~ -

For a full listing of the reports on drunk driving by the SemIte Committee on Post Audit and Oversigh~

see Appendilt A I

SENATE - No 1900 bull [December8

~ SECTIONONE MEAStRlNG ~LCOHOL-REtATED FATAL CRASHES

This seciion qef~~s drunk driving a~~ the~ tt~es the changing rate of a1cQhol-r~latedfatal cras~ in Massachusetts ov-cr the past ~decade -It ses ~tW9 $tirrogaie ~e~uies~of d~ drivmg ~gh~time d~atal ~qtQ4toQil~ ~rashes and asubStCltr ihi$ gfOUP~ single car n~ghttiihefata1Ci~hes -

p~~~~+( y 1 for thep~rpqses Qfth~ ~poJ1 dru~J(dtiYi~g~me~sthat a person

ismiddotopeialmg ~~jii~tor- yehicle witli a~blQ~)~L al~ohQf middotcltgtncent~a- tqI1 (Q~~ otO~()~percent or $Ofe Thjs~tlie le~lat whicha~son cap-~~)~ aTged~~n thec~iine of ~rlvitig~nder ~~bemiddotiPfluenCeQf ltquqrlt DU~L)i M~acluis~tts ~Bti9~~Y~ thelenlJodhis offense is ~djL~irigwhile middotiltoxi~ted~(DWI) ~ ~bull~ bull lt

)f~~1~iSQnop~raie~ a ~t~~~~l~l(wiha~~ of OlQperce~t or mo e~ Massac usetts -law raISes a pr~$QIDptJonmiddottbat thep~son IS

ctrunk7 tn~factmiddot~piaemlologicaI st-lid~e~Jiave sh~wn thilt~lie risk of an autofuobile~)ashmiddotbegirismiddot to ~~ signijicantiy wit4~ blooo alcohol

conceJitraiion oL90Spercent so the sta~ftoiy thresholds are qu~te t ~~ ~ - lt shy reasona~I1e- ~~_ bull A 150PQund~rs~n would have to lirtiitJiisoih~~-drinkjhgtono

more tii-an one lJrll1k p~ihour to aV6idilmiddotbJ(ntdwcohollevei of005 peic~~~~ r~a~~ia~IQod a~cohorley~l ~~Q~ (ORer~ilt li1s ~~me i~o pound nCfS9n w01ldmiddothave to cons~me$eyendrmks ~~eN~fourhour ~~i~d~l~4rinyen~~sequ8I to oemiddotQ~ce of tltO~ pro~fWh~~k~y~ ~ three ouncegl~of yt1tleior a~welve ounce cont~l~r ot~t The average BACotthQse atre~ted for drunk driving iIi MaSsachusetts during 1989 was 017- percen_t~ - ~ gt

shy

Measui~of I)ru~~Drlving ~ -

The best measure of whether or not a driver has consumed alcohol prior to an automobiie crash isto measure tlie drivers level of blood alcohol concentration at the time of the crash Unfortunately BAC evidence is available in only half of fatal crashes in Massachusetts at this time and several years back the information was even less complete

9 19M SENATE - No 1900

WitbQUtreliblcentBA~data~~echose to uSe tw6 surrogate measures to approximate ~he nl1Qi~ of fatal au~omobiIe craShes in which alcohol was illyolved~ nighttime fat81 ~ut6mobile ciasheSand a subset

of thiS Jne8sut~~rljghttitesectrngle Car f~iatcrasti~~ (cr~hes1~tolving ~only ~~ v~hicie~ No(e~i) ~~tal ~ig~i~ime ~utQiilobiie ~rash or

bull ni8htn~ ~~~gl~~~ cr~JjJi()w~vei i-middotca~~~Y ~rdrver ~~o has 0middot~ c~I1amp~~a~~~li91PQor rYisibilify)lIiCllowettiMfi~ vohimeare also

bullbull middotltrmiddotmiddotlt imJ)orlahtcliaec(efutic~~ nighttime (lrlVlng~lt7lt ( gt -c ~~ N~~~ii~a~~~~~iem~~~~a1middottr~ficmiddots~~~ymiddot e~Re1t~~~~t~~~~~ these middotsp1emiddottmiddotW9~eyenyre~ -th~t we use t9 st~dy d~4nV1~gp~ttemsIn faci~~6ut exa~tionmiddot ~fh~ ~cordsIrommiddotthemiddot ~~~~use~tsJ~egistry ~ ~ ltQf Mo~~~y ~~~~o~ ~t~~l~r~l xea~ ~~nrrrin~~ (1l~ d~yers -i~ car - crash~J)c~u~g~~Veen~he ~o~ 9f-6()OP1D1 ap4middot5S9 am are~

2- c ve~iileJyjtci~ti~~~-p~sitivel~~~JSofampl((Od aIC9~breoricentration Theidatfi)lisf1~p beiw~nfa~al~r8shesmvoivjhgdrilnk -(lovers and the tiq1centqfmiddot a8pound~ re~~ci~d in~ation~ ~ta 9f 19a9(~ ApPendix

if Bgt~ Accor4inSI(~~~se nationaldata inore ~lialhaIfof fjtamp11Ylnj~ied bull middotdrivelillfcraSJi~s~middoto~~mngmiddotbetw~en 9~~~Diand S~ ~Ip~ ejcUbit

_ BAC~lJ~)~rmiddota~r~~~~o~~riie~tB~tweeiimiddotmi~~~t~~~~~~~~~ the~ number nses tomiddot 70cperte~t Moteover the datamiddotshow-thatm smgle

car crasneS occUQlng behvee~ 900 pm and 559-am 70middotpercent of Jat~iyi~jiired~~versexhi~HaAltsat~rab~vfO10~rceJi~2

-_gt_-~ lt~lt~~~ _~-) + )~f~ gt - ~lt _- -- ~_ --~L--

Nighttime Fatal A~tombbUemiddotCrashesmiddot bull Igtatmiddoto~~ightfiriie f~ta1-aut~~obile~rashess~ggelttlia there has

been amiddotaecreaSe~indrUilic(Jtiving inmiddot Massachusei~ssi~~e~1979 For thismeasure~ w~ an8Iyzed th~ frequency of nighiti~e(ffom600 pm

- to 559 am) ra~M a~toriiobne crashes during the 1980s-We also compared the~Umber ofnighttime fat~ crashes wiihthenum~r of

dayti~~ra(a1 cr~h~s(se~~fi~re I and AppendixC) Comp~ng nighttime ~rashes withdaytime crashes coptrols for

overall changes in driving behavior changing road or weather conditions from year to year and ~hanging characteristics of the driving population The extent to which nighttime fatal automobile crashes exceed daytime crashes may be an indicator of alcohol involvement Moreover the extent to which trends in nighttime fatal

2 Facts Insurance Institute for Highway Safety 1990

~

- tmiddot

-~

~ 84 46 8~ middot~8l t 8~ ~ 89 Y~ar (

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SENATE- No 1900

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~~lt ~ middotmiddot1middot - - shy gtr~-

l bullbull

$--19 -eO~(81 82 shy ~

~ tmiddot

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10

-I -

Single CarNighttim~middotFatfCrashes Datil on nighttime singlecarcrashes also sugges~that the~ebas been

a decrease in drunk driving since 1979 For this irieasure we analyzed the Dumber of single car fatal crashes occurring between 900 pm and 559 am during the 1980s (see Figure 2 and Appendix D)

~( r- ~ ~ ~lIlelry olotar Vlllltle -

~~ f~ Poet -~n ~_nd Ove ~O

-FllilreI ~ - --- y - ~

I It w -gt bull

~ ltII bull - ~ s ~ -

jr~-crash~s do noisect~~~ro~middottr~~dsjn daytime fatalcr~~e~ rit~~ alsobe an bull + -indicator of cllilnging rates of alcohol involvem~nt

---- c bullbull

~middotmiddot~~~crmiddotmiddot r

-~~i~tn~~~~rmiddot middot~V) 2t- if bull Nightt~~-f~tal ~r~~es reached an all-time highin(f979 w~th a

t9~~lQF6~9fatal crashes but the numQerQ centr~slies declined dupng ~Ii~~~x-t 4e~~ulet reachin~a ten year1owof)S6 crashes in 19~9~ a 43perqentdrop _ ~r

bull Wille nithttime (fita crashes were declining betwe~ll 1979and -1989t theDumberofdaytimefatal crashes rose 14 percent shy

c

11

bull

bull SINGLECAR NlGHTTlMSiFATAl CRASHES ( 900 pm ~659 middotmiddotmf shy ~gt 1917--1989middotlt

r - ~ r ~ -

-

I

~ - ~ 1101__ ~~~~ _-~~-Lo-~L--~----_I--~~_ ~ lt ~ 78 71 oeo 81shy

~) r-~ pound~~~~~jtS~~~Lt~2middotmiddot ~ gt -~1oJ ~It ~ 0- 12180

~~~~~ [lt20 gt ~ $ipgl~ c81 DJgh~tiple fat craShes froni 336 crashesin 1979~

io~iin1989aj4Z percent decrease bull ~~t lt~ ~~ ~~r ~

shy -- ~FtaI~CJa$hRata~ -- middottmiddotmiddot

~e -i~~ Ji~ ~trol f~r middot~~~gesJn the numbe~ otmiddotdriye~$on the to~ we f caloulatecfthe faUimiddotciash-nue fOt everYIO~OOOlice~ cldVeIs both

(otMttinefattiicrashes and for siDgIe~ nighttim~ fatar~aslies -To~~~hether t~tCbasbein areducjonmfatamplldeseveJi-among--die y(iungest dri~en we- collect~ more ~ltCifiC d~ai forone~ofthe ~urtpga~sect JJ1~8s~~S ~(drunk dyenng -D~ttim6~fi~-c~ -Cr~hes middot-ACCtltJi~g totoe age of the automobU~opera~01linyqlved We e~aminect two agecohorts of drivers driyeri whowere twenty yearsof ageai)d driversmiddotWho were nineteen years-_ofagt and under and thenre~Wed the frequency off~tal cnlshe~~Qry~u~dri~~in 1979 198j~ 19~5gt and 1989 To account Jor poptdatlon c~ges we converted the delta to a rate fOf every 10000 licensed driVers (see Table f)

-

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r- - ~~

-

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i-

- - _ _ shy ICe]FDiding -- - shy bull - -shy-

tmiddot ~ r ~ ----- bull

bull ~~h~ ilu~~(of njsbttime fatal c~ashes per te~ tho~and licensed driVers dropped S~_percent from 179 crashes in 1979 to 084 crashes pe~ 10tOQO licensed drivers in 1989~

bull oF

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middotmiddotbullmiddotmiddot

~

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1990) SENATE - No 1900 13

bull Thef~ticmby~~fnighttimefatal crash~ a~~ng~teenage drivers dropp~d sh~iy(approximaiely 51pecent)middotbetween 1979 and

1983 - -~ ~ ~ ~ - ~ bullbull FrotPmiddotJ979 t~l1~~~tth~middot Dlght~iD~ fa~aI~t~~ ~ait~d~eased 47

pet~ltf()rtag~~middotmiddotand~5~rceQtfoiJw~tyyear oJ4 drivers bullbull - bull middotmiddotmiddot- bulltAmiddot ~-f- t _ bull bullbullbullbull ~- r f bull - bull bull bull

Iii 1919esjliJecarmiddotnightt4D~Jatalciash-rateforevery 10000 ij~~~f4ri~~~~~~middot O9S~by~he en~Q~ ~~~~ t~emiddotiate had fallen JomiddotO4~~per -l6~Jl~~d dJjvers a52 ~rcentdrop ~

j-Ji-~~(gt r middotmiddotmiddotWbt~ebullbullbullStiQ -~

~ r~ (middotmiddotI-_$~~ -~ ~Jr--lt- bull ~~ lt--~ bull

middotThe~lw~s1rrogt~middotineaSuresmiddot of middotdrunkdriVingmiddot bQtb suUest that fthere~~~Jiie~ middotmiddot~libStantial deCr~~~in aicori()lreia~a fatal crashes middottsin~~1~1jr~foiiui~teJY~ ~lt~rge P~ ofjt~~~d~iine~ocCJJt~ ~arly

~Qo Cf the deqMtS e~flyg8ins did not erode over Cii()he i~niaigderJof t~~ ~l~e~eveniJ1ougli~lj~r~ was sigiilil~~( growth

middotmiddotmiddotmiddotmiddot~middotildhe~i1eofdl~ dfiyening populati9nan~ middot~middotmiddotsl~lcentampD in~~e~ in the YIli~b~~1~e)nil~~rlye~~ In f~Ctpre~aiymiddotfig~s suggest that r~o~par~d~to-l98~mgbtti8)e fatal crashes~~ontinue(H~ Qeclirieduring tli~fuSt~itmiddotmpntl)~fJ~ ~ middottmiddotc lts~middotmiddot

Putjai~elti ~~C~ ~at~on~ (~ta indc~lei~~t M~sachusetts had areI~iv~~etyrecotd~tJi~~ was ~ongthebestiriJhecountry A~ong

_ ~~~~ JJor1bull s -1_ bull bull

~e highlyj)(jpul~~d)lidustrial states onlyNew middotJe~ey hadmiddot a lower ni8bttjmeJai~ciaSh t~te than ~~sachusettsmiddot 1 ( ~

middotRegaidles~ oftlieIeiuction in QighttiDicentfitalcrashea among young drivers since 1979~ rialion81 dat~ iridicatethat thedrivers whomiddot are

_ ~ - ~ prohibited~ by l~ (9in purchasin~ or beiJlgpublic~yserved alcohol are still fo~r time~ JtiQr~ likely to be involyed ijla nigltttim~fatal cr~h than the rest of the driving publics WithinMaSsachu~tts in 1979

these operatQrs made-up 10 percent of the dnVirigpopulationmiddot yet accounted or34 percept of nighttimefatal crashes today they make up only 9percent of all drivers yet they produce 30 percent of all nighttime fatal crashes

The states driving population grew by 614138 persons from 1980 through 1989 and over 90 percent of that growth occurred in the

Acxordiog to figures from the Department of die Registry of Motor Vehicles the number of miles driven in MassachUletIs rose from 3S2 billion miles in 1979 to 442 billion in 1989

DrunJc Drillinl Enfoc~mmt in MtlSsachuutu HtIS the Effort Staed Massachusetts Sen Ie Commitl~ on Post Audit and Oversight November 1988 See panicularly discussion on pllges 6 to IC

IRS Facts 989 Insurance Institute for HighVi~y Slfe1y

gt~middot14 [December

80 81 82 83 84 85 Fiscal Year

MA Dp~tllnt of Rftnu 7180 Snet Po- Audit andOftloll 12180

Flaur 3

- -1990] -SENATE -- No 1900 15

-~- ~

SECTION TWO LEGAL AND AD~TRATIVE CHANGESAFFECIING DRUNK OiuVlNG

-~ -DtnuNC THE 1980s- shybull bullbull bullbull _ - I - bullbull)~ ---~ ~ ~~

lbis ~oJtre~i ~vera1 of~~e mainlegaI ilJ1d administrative _stc- ~~~~Jr(~~cri~IC-~~l~~toco~ttQi~~titk yenvi~~ It reviews -shy

~CJ lA~~dnnJtWamp_agetmiddot the developmen ()f re1)abilitation proshy-it~IQ$~aarchang~jff~~g~n~ties andothermiddotCAuiliermeasures

-~ ~~~~~~~~~ flfgt~ gt ~ gt ~~ bull ~ ~-_ J ~~~~Af~~~beight~~~middotpUi)liccon~rn abQutdnWiig and drlVmg wIraquo~h~Vi~~~ppar~n(iD ibe l~te 1970s andcentar)y 19805 iUpro~pted -shy

ii bf~~~middot~pUbli~p~rceivcent to ~ a draU9~~~ incieasevinmiddot al~oholshylt rela~e4 -rl~ ~r~besamongt~ageIn 1972tt~ st~te ~id penDitted

middot[-f~igttlicdjrSt~(fme thetale of-aicohol~~ pCojl~elgbteen Y~arS of age ~~ otmiddot91aef6 Fbe~gtpublic saw ihis change as a stimUluStoatco~ol-retated ~cr~e~lt~~- ~~ lt _

lt middotWlt~t waamp_l~ceiy~tQ be an i~rease m~he incidence ofdrunk - dri~g~paitisUhirlyamongyoung people iii the 18tC(19708 lCd~~ the

_ltf esbtisnment ~of action groups such as Motherst AgaiQst Drunk ~gt- Diwiligt~ADD) and StUdents Xgainst D~ IgtriVingiS4DD)

middotfTIitse aeti~i$f8roupsmiddot~eie- able to gaiD -media~~ntiop iii a ~aDner ~middot~ltmiddot~Jhatdwane4the public middotattentionmiddotto earner efforts to curb drunk

lt driVing gt - - -

~ 8Ymiddot1979~middotd~nightti~emiddotmiddot(atalcrash rate of dnyer~tw~tyyears old anctunderwas~almo$fflve times the rate of that 9fall6ther drivers This trencl~h~roUghlYmiddotmiddot alarmed the public 8ri~ a newly elected

governor had made campaign promise to changetheage at which a person could purchase alcoholic beverages In 1979the drinking age was raised to twenty years old This was the fiiSt ofseveral legisshylative initiativesdesigned to reduce drinking and driving in Massashychusetts The drinking age was once again raised to age twenty-one in 19848

6 Acta of 1972 Chapter ISS Section 2

~ Acts of 1979 Chapter IS Section 6

bull 8 Acts of 1984 Chapter 312fmiddotmiddotmiddotmiddot

16 -(SENATE - No 1m [December

shy 7- - ~

Tb~ Impact of Legal ~bang~ ~gt-~) Throughoutthe i980s the state made s~veralmore legislative

changes t(fre4uc~ th~ incidence otdrunk driving With each of the legislative changes there wasa noticeable decrease iJidmnk driving activity In i982 the state increased penaities for drunk driving including makiilgjall sentences mandatory for a arletyof-offenders10

When the impact of this act appeared to bedeclininJ by 1985 and 1986 the state passed The Safe Roads Act in the later part of 1986

bull For an excellent discussion of past efforts to deal with this problem see Deterring The Drinking Driver H Ross revised and updated edition DC Heath and Company 1984

Acts of 1982 Chapter 373

I bull

middotmiddotmiddotmiddotf i f

p

II

2

~d~e~~~~if~er

beh~viq~~middotl

~fjmiddot~tftJlt

~r i-est~a~Cmiddotmiddot

-

~~ tmiddot ~ gt _

~

gt

arresihi

-~~0--middot~middot

bull ~statisti~y~o

_-0 ~ lt - _ bull ~

~NATE - No 1900 17 - -

~ Thejn~~nto(TheSAre ROad~A~t was to make adjuditati~nfor drunk an~tmiddotmiddotmak(Pe~aIties more middot~~middot~bl f~t as recentmiddot

anaJYl~~~tof~d~8teth~middot~sutanc~tHatjudamp~entwQ~ld~_swift anti~e~ri is th(~O~L~n~~iye Yay t9 b~ve C JJipact ~n p~blic

~~~ ~lt -Yo ~ ~ gt lt~ loJ~~l~~y1 ~~Os~publiccoricepi a~o~tdmiddot(lnkijriyeningalS() affected

themiddotat~fdes~~(ineP911middotmiddot~4 tli~ltc~uits~~t~i)Yete~atlve ~~4~~k~~~tiyen~~ )~i(jii~r ~oi~pletpeni ne~rsfrae~~sUcl1 ~ tbe use

~gmiddotmiddotmiddotoa~ltmiddotbl~Cksmiddot and t~e 4~fjsi()n ~y tlie-Al~o1ionc B~~~tg~~~h~~lComm~iop 0 cuit~ ~~a~ho~~_ inD~ arid re$iauTl1ifS1i~~Qr~bvet middot~coJJrtmiddotmiddotdeciSio~s i~g~ng the liability of i)i~If~(di~ts)or~~iVing dnDJier-s Wh~) w~resugtseqiently jnvolJdin ~ authmof)J1~~t8$lje~ middotht4t ~ siPmcant imp~t on the willingnessmiddotor cortimercW est~blis1iIDentS~ middottomiddot serve aicohol1c ~veragesmiddotmiddot without

~ r~middotmiddotltmiddot ~ t

~-~~~ ~ ~ ~ ~ middotfmiddot

middotbthermiddot~9wlteftn~UreS ApiDStmiddotD~priverS _-~_ ~~ ) p $ ~ p -

Inere~gpubli~concemmiddotapout drunkdriving alsolcentd to a~tronger

fOcuS-bnihe c(ninterii1eaSutes~aicen to limit druDk~diivihg during the - _ HI _ ~~ 1 - bull

1980sinese-ine~i~ tyigti~ally fall into ~hreemyenn categ~ries gt ~~uilkdtiveis olt~~g eVidencemiddot thil~middotth~s-e d~Veis ~

~tuanydrunk ~~rpe~aliiingdrun~ drivers ~ i_ ~)r0 ~

Dr~tirivJDI ~ri~s ~

jUs~ ~~the s~atjsilcsmiddotdein~nstrate a dr~p in drrinkdriyh-tg~actiyity iiid)catethafdrunk drivingarrests fell off dildng the

past d~caa~A~~rdjJigmiddot ~t~~ t~e middotNatioJial HighwayTtaffic-$8fety Admipl~iiati~iJ~middotmiddot~e natiQq~t peak in drunk ~ijyqig eJifdrcement

activityoccurre4 in 19~~when aInt0st 2 iliiJli~ii Pt~ple - approxjmiddotmately ti2 percent~o the nations li~enSeddrivers ~ were

middotarreste4IoJmiddotdrtintltdriving Nevertheless t~e Natio~~rligh~ymiddotSafety Admilfs~ration~stimateS hat even during the p~k years of enforcement police nati6DaIiyapprehendedmiddot only 1out 0(500 people who wercdriving under theinfluence of alcohol atamiddotgiven time

According to infonnatiol1 frtgtm the Office of the Commissioner of Probation enforcement in Massachusetts peaked a little later than

Nichols JL and Ross HL Th~ Eff~elivtM$$ 0 Saneiomor DWI Oftndns paper presented at the International Conference on Alcohol Drugs and Traffic Safety October 1989 Chica80 Illinois

204 CMR 403 adopted December 10 1984

-~

c

--

~

lt

gt ~

- gt

01

19 bull 1 I

39~9i2 - UOS~ 31~1700 40251100

79l

180

SENATE shy No 1900

I ~

~ IS74 - 2S87 I

291C)ooQ - i 36414oo

~

DUlIAreSh ric~sed Driv~n

1990]

Amiddotti~t Rate per ~ ~ l~~DriYers J 1~B7 shy 710 ~

r - 1 ~- ~+ - - - ri

- SO~e ~n~tC P~st- _AUdit and~v~iBht

r-~-middotgt7~ bull ~ ~ ~ 1~ ~ ~

i~gsc~ gt middotOL gt bull bull _ Themes~iratcdncrea$ed263 percent from 1970 to 1984 from

~ shy ~- iai~~lO bull~ariestsptriOOoIicen$eddrivers~~-_ ~ _~ ~~lmiddot ~ ~ gtshy bullbull - __

_ ~ - Be~weiit198()-and 1984 -~he drunk driving arrest raie rose 47 ~ bull ~tf1~t 4 _ bull bull bull - 1

pei~nt ~9ntiiluingt~e~PQsitivetrerid established-d~g the two S p~e~~pifii~yearpeii~ds - shy gt - -~ S~t~84~~arre$ti~t~ h~ d~cIined 24 percent

Tfi~~ii~tff~t~~t-i~OOo licensed 4rivers ini989 (791) is only gt 1pound~nffil8her tbijiit~e i98() rate~_ -T

_ ~middot~--I ~ - 1 _ ~ bull bull bull ~ thF~ ~~~com~tmg explanatio~ for the 24PerCent~c=Crease in drnlt~t~g~Cyentivitysince 1984The t-rstexp~tion

favoi~qbYanu~ber-ofpoJice admiJiistrators is that P8st~nforcement and acfjap2eindQver bChavi()r ~ responsible for the CI~rCaSing rate of aq~$(~~ According to th~ theQry there are f~w~~altestsbecause past enforcement efforts-have successfully deterred d~ driving so

that there are fewer drunk drivers on the roads to apprehend There have not been any local studies to test this explanation~ but few safety experts have been willing to accept this type of anecdotal data on face value

19

1shy

1

1 I

~_ bullbull

~

j -

SENATE ~ No~ 1900 December

Acts of 1961 Chapter 340

14 MGl Chapter 90 Section 24f

1990) 1 lt SENATE ~ Nol900 _

-~~ ~

~i -

PenUllog Drunk Drivers

The Massachusetts system for penalizingdunk drivers includes middotlicense suspensions or revocations fines education and treatment and incarceration The penalties are graduated into three main steps such that theybecome increasingly intensive and they are determined

IS Digesl of Slale Alcohol Highway SafelY Relaled Regulalion eighth edition National Highway Traffic Safety Association

11

- ~

gt SENATE shy No 1900

-

~

[December

~

gt

See Acts of 1982 Chapter 373

c

13

i

- f -- ~ _ gt bull $ -

~i~-~~(~~ ~ ~ ~~ middot(Jey FW4iDgS~ ~ -

- ~_~ _~ ~~ ~ g- ~~ 1__ I bull J

bull ASS1~~~nts-to middotir8t offender programs hv~middot d~crea$ed 20 perceilrsincefis~aLyear 1985i mirroringJh~~~hllng auest tate

bull A~sigriments to the second ~ffenders piogr~~h~lV~deereaSed bull lo _ (

but te-middotdeclirie~has not been as sharp-as fQrthe first offender

(- ~ J)rosr~~ -~ imiddot cmiddotbullbull ~~-- r middotltThe Departme~t of Public 9f Health r~portsltthat while the

frequenCy o~adtni$~i()ns to th~ 14-day trtmen~J)r()gram has middotdecreasedover the last~five years~the demographic cJtaracteristics of fitstand $~cond offender drunk dovers have rem~ined fairly cOnstant includingtheir aver~ge age (approximately 31 ye~s)middot Furthermore inmiddot 1989 when there-were 33709 arrests 2550 drtink drivers (76 percentwent to jail in 1984 when 39912 drunk drivers were arrested 2006 of them were sent to jail (50 percent)

bull bullbull bull

17

~

~ middotc~)middotmiddot ~

~

- gt ~ -ilt c

-

bull gt

accur~~y

SENATE No~ -1900

[December - -1

sECnorit~REE I~~VESIN ~IMPLtEi)CONSENT J - po ~ _ --- ro bull

Int~ s~ctio~iof- themiddotr~o~ve 10~ka M~sa~hu~itS~ experience withf~tiilg for~lPt~xication~ nctthe implied conselli law Wcentthen e~amirttlieinw~~f~e~~~p~6(J~~ li~ on~~ain~s aDdmiddot~nmiddot

Ul~eqr~~ineDt ~syst~in ~a~~()Y~~1detltifY thieemiddotprD~~erils with - ~hcentJa~~s~tnp~~~atiQ~th~q~ngmiddoti~reflS~middotrat~1ui1ohgdet8iJl~s

middotmiddot(middot~~middotfP~~~q~I~~ac~~e~~~t~cen~e~sus~~i~~(~h~~~ ~hp ~emiddotil1e- test and faiJ~middot~iidfinaJI~tl1flack9fjdequat~iecoidsmiddotQllwhether the test was iidfu1nister~accepted middotormiddotfCieetectmiddot gt

~~~~jgtt~middotc~-ltmiddot TJ~(~ic~aeY9f1Ji~Tests ~

~7 bullbullbulll-~ - _ bull bull _ - _

Th~i~ middotis-inc~~~g evidencif that th~ tcentst pr~ltUresin place in yen$~U~~t~~u~e_lair pJa-yXor ttSt)~bjects~ft~ tb~tmiddotth~ infrared

iDaelJll~~ reqqired by the~w are accuratecanci teliable In what is ~~~~pg~I~~~~k c~e-in~~e fi~Ilt4Sat~ 6fJV~~Je~se~ v Andrew l)omiddot~m~ et ~l~Jle Supreme Co~ of ~~wJeJSeyhel4~tpat ~ch tes~~

~~c~~~~~~~~in~ ~gt ~ ~~~~ gt ~ ~ We-areconfiaenn~tcontInti~useoftheb~atfW~rwjllnot lead to unjustmiddot~~~vleti9~-The ~le~~ ~deii~ IS m9tet9ii~1~ive now t~tve(iliat ~e cbilQCe$of-ove~ti~m~tjonmiddot are ~Jaotdnarily ~

sm~l1middotmiddot middot ~fTbe b~ath~~er ismiddotmiddot)i~asSedin -i~ cQinbined pr~~ticalitymiddotmiddotampil4 use~~ssh em OJ he low side 111 a sl8nficant nu~ber ofcases in-order not to overestimate bloodmiddotatcoholin the

middotmiddotgreaies~j)ossibenumoer OfC8Ses~ Wi~e~ ~Vinlted this ~jusifiable middotmiddotiifltgtr4~r to furthermiddot the legislatures wilt ~rid middotmaiDtmefficiency in cmiddot

oiu~ystemQtJustiCeP ~ _ lt1middot~~middotmiddotmiddotmiddot ~t~ ~ ~ -~~ - -- ~

TheVqwnie tilSe is especially valu~bl~ ~ec~use ~lt)stl9f tJte leading expert~lp the ftefd~pPearcentd and teslifiea5othaftheNew Jersey court had tliebeilefjLofan extraordinarily comigtlet~ ~cord uponwhich to base ~its decision The Downie case reduCes concerns about the

and ~reliability of the breath~test middotJlJachines ~urTentIy permitted by MaSsachusetts law ~- ~

The ieliabiii~y of current technology is beco~ngless of an issue Deliberations jQ Massachusetts can ther~fore f~cus on whether the state wants accurate evidence of alcohol impairment and to what extent it wants such evidence not how the test is administered or whether it is accurate

Stall of Nlw Jersey v Andrew Downie e al 569 A2d 242 (NJ 1990) page 251

25

r J I

bull ~J~i~t Ri ~ gt i~mrmiddot1 ~ middoti~~~~ lt~~~~~$ ~~ ~~~a~~mber) (lIe~fet) middotSiilpeDsl~as ~UI~~its~Cn$ 1

- middot~I986~ middot38iO~9middot - 9449 middot2S NA J I middotmiddott~~l~ t~a8J66o c ~~ 13510 36 2608C)middotd

middotmiddotI~~~J~ i~~~~l~ 3~C ~~ml

1middotgt~~atePcrst A~(iifil~CI oVCrsi8h middott cStima te ~ ~ -I

sect~lIlc MA~J5~centlsirY ~pdotor ~Chi~ICS _ ~l I ~~ gt1 i

~ 1

Ij~~~~~~ qgt ~~~ceJ986~middott~ep~rC~iltage of pe~onsr~fus1Dg~o J~e a breath

orJ)loOd~tes( aft~r arrest for drunk dtiving hasJncreased 44 - p~~~n~lrising f~Qll2S percent to 36 ~rc~rttlt

middot ltOut of33imiddot7~ p~~pl~ -yenr~ted -fo~ dru~dri~i~gj~Massachushy 0 middotsettsciuiiJig-198~12279people refused to take abfeath or blood test -and~()nly U~639 actually took a breath ormiddot bl~od test arter ~ JliTestmiddotmiddot -

bull Registry ~tMotor Vehicles and Office of Alcohol Testing reports do not indicate and cannot account for whether or not 9791 of the states 23918 dnitlk driving offendersin- 1989 were offered a breath or blood testand whether they took or refusedihat test

26 SENATE - No 1900 [December

Ie Of the 11639 offenders who consentedmiddott~ a ~~eath or biood test in 1989o~y6998 haeJ theirJicensessus~middotnded under the provi- sionS of~he-~aamimstraiivePerse role

There ~r~-three~~se~o~ pr~bienis jItlieM~~~b~~etts implied consent ~trategy Firsimany offellders are tefusittjto take a test

~ 1~~~~~~~1~~~~ ~t~~ t~1~~4la~e~~e~ fir~t offe~ders ar~~~soretusing~o t~eth~eSF D~ng thepcriodlt

froQll9ampampto-1982)ii~)1mrber of people refuSing teiake the test has rise~ 44 p~r~ent froJl2S percent of those aITested1t) -36 percent of

those arrested gt ~ - bullbull

~ The iniat~forinfor first a~d ~~c~rilaquo(offe~(etproampraritsoffermiddot middot8ddtiQna~vid~Jice- diat the proportion or-clients refUsing middotto take a

~br~at~ tcentsectt~~ter middotmiddot~IT~~tmiddot ~as risen sharply Alice~ t981 andsecond p~ngers il~e)nu~h~orelikeryo refus~ to take~he middottestmiddot During

calepdar ~~rmiddot1989~ percent ~f the second- offendcrs ad~tted to the i4-ltiyiJogran1reported thalt~ey hadiefus~to take abreath

~ bull 0 bull _ bull bull

test c()mp~ to a 33 percent nite for flr$t~offen4eIS ~ The CoDinu)nwealtIj therefore~ must prosecute 8Imost two-thirds

of its drunk drivers without scientific eViden~ - cd imp8irment Mo~eover~J~e pr~s~~i~penalty structure is~i~~ffecii~e~I~ca~mgthe

vast majorityof dninkdrivers to ~onsend~the ~r~th t~~t Second roughly oile-tbird ofthosewhp~taketb-e bteatbmiddot test and

arefoundtohave alllgh blood aicohol conce~tratioiaren~(getting their licenses suspended Of the 33709 peopie ~~lor drunk driving in MaJossachusetts duIjng 1989 onlyOne-third were documentedHo havetaken a blood alcoh()tteStaftetartestOf those who were dricume~ied to have taken the test (rQtU the Commonshywealths testing experience we could estimate tha~IO800 of these individuals would have had a blood level conCentration of at least 010)8 However datfl from the Registry of Mot~~ Vehicles show that only 6998 persons were suspended under the middotmiddotadininistrative per se provisions All 10800 of those who would have tested above 010 percent however would have been subject to an immediate license

Accordinl to data from the Office of Alcohol Testing only 63 percent of those persons tested durin fiscal year 1989 and 62 percent of those per50m tested during fISCal year 1990 recorded test results of

BACs below 010 percent Given these results it is likely that of the 11639 tests administered in 19Z9 10800 would have BACs higher than 010 percent

SENATE - No 1900 27

suspension 81 aiJai~~e~~there is no ~1earieasonfor the states failuftnO suspen(J the licenSes of Offenders Th~third pio~~em W(~hthe statesimplementatlonoftbe implied

~ consent law is~lli~p~o~ie~tr~cor4 ~eep~ng p1cent riu~ber of people who refuse thehteath~iYi~fan(fthosewho takethe test~c~ouni for only10S perCcent~t9(tat~~~~irestslt ~~very ~isl~rbi~g t~~t_ the state ~l~0~acc9ui1~fqr~t~qpL~Opercent ~I itscaSeSltt~~ ~ gt~_

Sorn~Qf-tht(~uiirepq~~d casestn~y~ hav~ bcent~J)middot~p cit~~mstaJices wheii~~~poli~~iriad(~aij~~ts gtwithOut offerbigtbe tesi niis oCcurs

-J ~ r middot~middotmiddot-i~ middotr~ - __ r - - - -

wh~~ ~secteCp~~~ofic~r ~~np( ~v~ljPJ~ t~_ ~it_n~~~~h~ ~esliHr wheremiddot thercent it~no qualifiedbreadttest oper~tor prese1itcFhi~oC(ursmore

middot~~ f ~ ~ bull - bull ~ bullbull J - - bullbull ~ _ j J bull bull _ bull bullbullbullbull shy

fr~qu~ritlYin_~PIaJ~r~pat1ments Tlielaw r~quir~llfa(iirtJl~)vent

thatt~~lis~~J~fu~~~gta-~cp~~ical test- wh~n~qqe~ted tli~ officer L~c Jiii~gfli~treq~~sfsli~lf~piJllediately prepar~ a~ptfenlepqFrof s1ch ~ ~ ~ jrrefusaIarid~ thtfthis r~phifmust bet end()rseltt6y~tliirdpeison ~who -~~-~~bad i~iiesseltl jJ1~refu~Waowever~hetej~nsect Way Q~o~what _-

r ~ tOpartQfJhe 30middotpe~ntojdie unreported casesis1111Ci tQ t~i~Teason~2o lt gtj q ~ltmiddotgtgtigt lt ~-

~ ~i~ SECT10N FO_~ s~~~~~y ANDRECO~~~~J~r~~N~ Cle~rly the G6Q1ni~n~ealths comQ1itDen( ~~diu~~ driving ~iet1tnce hasti~n i~~oya~~~e s~bst~tial~a~~ sfifssf~~Glt~n~es

10 law~ and recentc()urt de~ls10ns aff~tm~ ltabiAty~for d(Unk dnv10g -accid~iltShave h~(f asigl~ant influence on red~~iiig~r11nk4riving as diq iip~reAAe~rl~welif()rcenient The Com~dilw~a~li~s~~uccess is

also ~itti~utahdo strongpuhlic awareness andconce51L~(ltliedeshydine indrinkll)g~~and thechanging demographicsOf (lie dpving popuI~tion middotfmiddot

Alsltgt in spiie6f noticeable decreases in sevetal~n1nk driving countermeasuresduring tlle latter years of the decade state efforts to deter and identify drunk driving during the years 1980~to 1989 far surpassed the efforts made in the preceding decade (see Table V)

9 MGL Chapter 90 Section 24(1)

20 The Commonwealth must address the problem of circumstances arising when there is no witness to a test Just as local fire departments frequently rely on mutual assistance from other communities police departments must make arrangements for mutunl aid cr for centrJlizeltesting of drunk drivers especially in the more rural areas of the state

[December

~ -

EdwardB~dWeill~ ~~~ qi~ik oiizj$en41~ State aoui~~Rolini2~8 aoStonM~ 021j3~~ - - -

bull I

Dear Mrmiddot~f~~ein~_~~lt_ lt~ 1 ~~

Pursu~~t-Jo Mi9J~ Chapter 3 ~ectio~middot~3middotas m~st recently - ~melde~J~y~Chapter ~5-1 of the~Acts of)986theSena~e~ommitteemiddot ~L~nmiddotPmiddotos~~~it ~~dqversigttt r~Pectfllix~~u~Uiits to the funSepate gt~~he follciWing reportmiddot CONTR9LLlNltrJIJEDtUNK DRIVER

1980S in review~ shy ~lt ~ T1le r~p~rlmiddot p~~id~S uP~to-ct~te ininna~~o~~~~~ middotd~~k ariYing

ratalities-~d arr~s~s~ltalsoreviews and e~aifiines-theprogress made during th~-l980s~iti~etefringdrunk driingmiddotmihe Commonwealth

y - -

Respectfully filed by the Senate Co~mittee onPost A~dit and Oversight -_ - -

~ ~ ~~~ -

SenatormiddotW bull Paul White Vice-Cha~rman

$i)~~ Senator Thomas C Norton

Senator Mary L Padula

-

I

SENATE No 1900 - ~

10 II 14

Drunk Driving Arrests 0 bull bull bull bull 0 bull 0 bull bullbull 18 bull bull bull bull bull bull bull bull

--

-

[Deeembel

shyj-

~ ~

7

middot t

1990] y SENATE - No 1900 -

be ~ea of ~ -

For a full listing of the reports on drunk driving by the SemIte Committee on Post Audit and Oversigh~

see Appendilt A I

SENATE - No 1900 bull [December8

~ SECTIONONE MEAStRlNG ~LCOHOL-REtATED FATAL CRASHES

This seciion qef~~s drunk driving a~~ the~ tt~es the changing rate of a1cQhol-r~latedfatal cras~ in Massachusetts ov-cr the past ~decade -It ses ~tW9 $tirrogaie ~e~uies~of d~ drivmg ~gh~time d~atal ~qtQ4toQil~ ~rashes and asubStCltr ihi$ gfOUP~ single car n~ghttiihefata1Ci~hes -

p~~~~+( y 1 for thep~rpqses Qfth~ ~poJ1 dru~J(dtiYi~g~me~sthat a person

ismiddotopeialmg ~~jii~tor- yehicle witli a~blQ~)~L al~ohQf middotcltgtncent~a- tqI1 (Q~~ otO~()~percent or $Ofe Thjs~tlie le~lat whicha~son cap-~~)~ aTged~~n thec~iine of ~rlvitig~nder ~~bemiddotiPfluenCeQf ltquqrlt DU~L)i M~acluis~tts ~Bti9~~Y~ thelenlJodhis offense is ~djL~irigwhile middotiltoxi~ted~(DWI) ~ ~bull~ bull lt

)f~~1~iSQnop~raie~ a ~t~~~~l~l(wiha~~ of OlQperce~t or mo e~ Massac usetts -law raISes a pr~$QIDptJonmiddottbat thep~son IS

ctrunk7 tn~factmiddot~piaemlologicaI st-lid~e~Jiave sh~wn thilt~lie risk of an autofuobile~)ashmiddotbegirismiddot to ~~ signijicantiy wit4~ blooo alcohol

conceJitraiion oL90Spercent so the sta~ftoiy thresholds are qu~te t ~~ ~ - lt shy reasona~I1e- ~~_ bull A 150PQund~rs~n would have to lirtiitJiisoih~~-drinkjhgtono

more tii-an one lJrll1k p~ihour to aV6idilmiddotbJ(ntdwcohollevei of005 peic~~~~ r~a~~ia~IQod a~cohorley~l ~~Q~ (ORer~ilt li1s ~~me i~o pound nCfS9n w01ldmiddothave to cons~me$eyendrmks ~~eN~fourhour ~~i~d~l~4rinyen~~sequ8I to oemiddotQ~ce of tltO~ pro~fWh~~k~y~ ~ three ouncegl~of yt1tleior a~welve ounce cont~l~r ot~t The average BACotthQse atre~ted for drunk driving iIi MaSsachusetts during 1989 was 017- percen_t~ - ~ gt

shy

Measui~of I)ru~~Drlving ~ -

The best measure of whether or not a driver has consumed alcohol prior to an automobiie crash isto measure tlie drivers level of blood alcohol concentration at the time of the crash Unfortunately BAC evidence is available in only half of fatal crashes in Massachusetts at this time and several years back the information was even less complete

9 19M SENATE - No 1900

WitbQUtreliblcentBA~data~~echose to uSe tw6 surrogate measures to approximate ~he nl1Qi~ of fatal au~omobiIe craShes in which alcohol was illyolved~ nighttime fat81 ~ut6mobile ciasheSand a subset

of thiS Jne8sut~~rljghttitesectrngle Car f~iatcrasti~~ (cr~hes1~tolving ~only ~~ v~hicie~ No(e~i) ~~tal ~ig~i~ime ~utQiilobiie ~rash or

bull ni8htn~ ~~~gl~~~ cr~JjJi()w~vei i-middotca~~~Y ~rdrver ~~o has 0middot~ c~I1amp~~a~~~li91PQor rYisibilify)lIiCllowettiMfi~ vohimeare also

bullbull middotltrmiddotmiddotlt imJ)orlahtcliaec(efutic~~ nighttime (lrlVlng~lt7lt ( gt -c ~~ N~~~ii~a~~~~~iem~~~~a1middottr~ficmiddots~~~ymiddot e~Re1t~~~~t~~~~~ these middotsp1emiddottmiddotW9~eyenyre~ -th~t we use t9 st~dy d~4nV1~gp~ttemsIn faci~~6ut exa~tionmiddot ~fh~ ~cordsIrommiddotthemiddot ~~~~use~tsJ~egistry ~ ~ ltQf Mo~~~y ~~~~o~ ~t~~l~r~l xea~ ~~nrrrin~~ (1l~ d~yers -i~ car - crash~J)c~u~g~~Veen~he ~o~ 9f-6()OP1D1 ap4middot5S9 am are~

2- c ve~iileJyjtci~ti~~~-p~sitivel~~~JSofampl((Od aIC9~breoricentration Theidatfi)lisf1~p beiw~nfa~al~r8shesmvoivjhgdrilnk -(lovers and the tiq1centqfmiddot a8pound~ re~~ci~d in~ation~ ~ta 9f 19a9(~ ApPendix

if Bgt~ Accor4inSI(~~~se nationaldata inore ~lialhaIfof fjtamp11Ylnj~ied bull middotdrivelillfcraSJi~s~middoto~~mngmiddotbetw~en 9~~~Diand S~ ~Ip~ ejcUbit

_ BAC~lJ~)~rmiddota~r~~~~o~~riie~tB~tweeiimiddotmi~~~t~~~~~~~~~ the~ number nses tomiddot 70cperte~t Moteover the datamiddotshow-thatm smgle

car crasneS occUQlng behvee~ 900 pm and 559-am 70middotpercent of Jat~iyi~jiired~~versexhi~HaAltsat~rab~vfO10~rceJi~2

-_gt_-~ lt~lt~~~ _~-) + )~f~ gt - ~lt _- -- ~_ --~L--

Nighttime Fatal A~tombbUemiddotCrashesmiddot bull Igtatmiddoto~~ightfiriie f~ta1-aut~~obile~rashess~ggelttlia there has

been amiddotaecreaSe~indrUilic(Jtiving inmiddot Massachusei~ssi~~e~1979 For thismeasure~ w~ an8Iyzed th~ frequency of nighiti~e(ffom600 pm

- to 559 am) ra~M a~toriiobne crashes during the 1980s-We also compared the~Umber ofnighttime fat~ crashes wiihthenum~r of

dayti~~ra(a1 cr~h~s(se~~fi~re I and AppendixC) Comp~ng nighttime ~rashes withdaytime crashes coptrols for

overall changes in driving behavior changing road or weather conditions from year to year and ~hanging characteristics of the driving population The extent to which nighttime fatal automobile crashes exceed daytime crashes may be an indicator of alcohol involvement Moreover the extent to which trends in nighttime fatal

2 Facts Insurance Institute for Highway Safety 1990

~

- tmiddot

-~

~ 84 46 8~ middot~8l t 8~ ~ 89 Y~ar (

J bullbull __ ~r

~

SENATE- No 1900

--shy~--~~~~-lt~~~- gt- ~~ ~_-_-~~-~_~- --=shy

~~lt ~ middotmiddot1middot - - shy gtr~-

l bullbull

$--19 -eO~(81 82 shy ~

~ tmiddot

- ~ ~ ~ - t bullbullbullbullbull ~ - shy-_ ----r~~~~

10

-I -

Single CarNighttim~middotFatfCrashes Datil on nighttime singlecarcrashes also sugges~that the~ebas been

a decrease in drunk driving since 1979 For this irieasure we analyzed the Dumber of single car fatal crashes occurring between 900 pm and 559 am during the 1980s (see Figure 2 and Appendix D)

~( r- ~ ~ ~lIlelry olotar Vlllltle -

~~ f~ Poet -~n ~_nd Ove ~O

-FllilreI ~ - --- y - ~

I It w -gt bull

~ ltII bull - ~ s ~ -

jr~-crash~s do noisect~~~ro~middottr~~dsjn daytime fatalcr~~e~ rit~~ alsobe an bull + -indicator of cllilnging rates of alcohol involvem~nt

---- c bullbull

~middotmiddot~~~crmiddotmiddot r

-~~i~tn~~~~rmiddot middot~V) 2t- if bull Nightt~~-f~tal ~r~~es reached an all-time highin(f979 w~th a

t9~~lQF6~9fatal crashes but the numQerQ centr~slies declined dupng ~Ii~~~x-t 4e~~ulet reachin~a ten year1owof)S6 crashes in 19~9~ a 43perqentdrop _ ~r

bull Wille nithttime (fita crashes were declining betwe~ll 1979and -1989t theDumberofdaytimefatal crashes rose 14 percent shy

c

11

bull

bull SINGLECAR NlGHTTlMSiFATAl CRASHES ( 900 pm ~659 middotmiddotmf shy ~gt 1917--1989middotlt

r - ~ r ~ -

-

I

~ - ~ 1101__ ~~~~ _-~~-Lo-~L--~----_I--~~_ ~ lt ~ 78 71 oeo 81shy

~) r-~ pound~~~~~jtS~~~Lt~2middotmiddot ~ gt -~1oJ ~It ~ 0- 12180

~~~~~ [lt20 gt ~ $ipgl~ c81 DJgh~tiple fat craShes froni 336 crashesin 1979~

io~iin1989aj4Z percent decrease bull ~~t lt~ ~~ ~~r ~

shy -- ~FtaI~CJa$hRata~ -- middottmiddotmiddot

~e -i~~ Ji~ ~trol f~r middot~~~gesJn the numbe~ otmiddotdriye~$on the to~ we f caloulatecfthe faUimiddotciash-nue fOt everYIO~OOOlice~ cldVeIs both

(otMttinefattiicrashes and for siDgIe~ nighttim~ fatar~aslies -To~~~hether t~tCbasbein areducjonmfatamplldeseveJi-among--die y(iungest dri~en we- collect~ more ~ltCifiC d~ai forone~ofthe ~urtpga~sect JJ1~8s~~S ~(drunk dyenng -D~ttim6~fi~-c~ -Cr~hes middot-ACCtltJi~g totoe age of the automobU~opera~01linyqlved We e~aminect two agecohorts of drivers driyeri whowere twenty yearsof ageai)d driversmiddotWho were nineteen years-_ofagt and under and thenre~Wed the frequency off~tal cnlshe~~Qry~u~dri~~in 1979 198j~ 19~5gt and 1989 To account Jor poptdatlon c~ges we converted the delta to a rate fOf every 10000 licensed driVers (see Table f)

-

~ i

f J

-

f shy

r- - ~~

-

middott

i-

- - _ _ shy ICe]FDiding -- - shy bull - -shy-

tmiddot ~ r ~ ----- bull

bull ~~h~ ilu~~(of njsbttime fatal c~ashes per te~ tho~and licensed driVers dropped S~_percent from 179 crashes in 1979 to 084 crashes pe~ 10tOQO licensed drivers in 1989~

bull oF

I

4 See

S

bull

ltU~gt

hmiddot~in~tIiemiddotdeC~e

middotmiddotbullmiddotmiddot

~

=~= ~

1990) SENATE - No 1900 13

bull Thef~ticmby~~fnighttimefatal crash~ a~~ng~teenage drivers dropp~d sh~iy(approximaiely 51pecent)middotbetween 1979 and

1983 - -~ ~ ~ ~ - ~ bullbull FrotPmiddotJ979 t~l1~~~tth~middot Dlght~iD~ fa~aI~t~~ ~ait~d~eased 47

pet~ltf()rtag~~middotmiddotand~5~rceQtfoiJw~tyyear oJ4 drivers bullbull - bull middotmiddotmiddot- bulltAmiddot ~-f- t _ bull bullbullbullbull ~- r f bull - bull bull bull

Iii 1919esjliJecarmiddotnightt4D~Jatalciash-rateforevery 10000 ij~~~f4ri~~~~~~middot O9S~by~he en~Q~ ~~~~ t~emiddotiate had fallen JomiddotO4~~per -l6~Jl~~d dJjvers a52 ~rcentdrop ~

j-Ji-~~(gt r middotmiddotmiddotWbt~ebullbullbullStiQ -~

~ r~ (middotmiddotI-_$~~ -~ ~Jr--lt- bull ~~ lt--~ bull

middotThe~lw~s1rrogt~middotineaSuresmiddot of middotdrunkdriVingmiddot bQtb suUest that fthere~~~Jiie~ middotmiddot~libStantial deCr~~~in aicori()lreia~a fatal crashes middottsin~~1~1jr~foiiui~teJY~ ~lt~rge P~ ofjt~~~d~iine~ocCJJt~ ~arly

~Qo Cf the deqMtS e~flyg8ins did not erode over Cii()he i~niaigderJof t~~ ~l~e~eveniJ1ougli~lj~r~ was sigiilil~~( growth

middotmiddotmiddotmiddotmiddot~middotildhe~i1eofdl~ dfiyening populati9nan~ middot~middotmiddotsl~lcentampD in~~e~ in the YIli~b~~1~e)nil~~rlye~~ In f~Ctpre~aiymiddotfig~s suggest that r~o~par~d~to-l98~mgbtti8)e fatal crashes~~ontinue(H~ Qeclirieduring tli~fuSt~itmiddotmpntl)~fJ~ ~ middottmiddotc lts~middotmiddot

Putjai~elti ~~C~ ~at~on~ (~ta indc~lei~~t M~sachusetts had areI~iv~~etyrecotd~tJi~~ was ~ongthebestiriJhecountry A~ong

_ ~~~~ JJor1bull s -1_ bull bull

~e highlyj)(jpul~~d)lidustrial states onlyNew middotJe~ey hadmiddot a lower ni8bttjmeJai~ciaSh t~te than ~~sachusettsmiddot 1 ( ~

middotRegaidles~ oftlieIeiuction in QighttiDicentfitalcrashea among young drivers since 1979~ rialion81 dat~ iridicatethat thedrivers whomiddot are

_ ~ - ~ prohibited~ by l~ (9in purchasin~ or beiJlgpublic~yserved alcohol are still fo~r time~ JtiQr~ likely to be involyed ijla nigltttim~fatal cr~h than the rest of the driving publics WithinMaSsachu~tts in 1979

these operatQrs made-up 10 percent of the dnVirigpopulationmiddot yet accounted or34 percept of nighttimefatal crashes today they make up only 9percent of all drivers yet they produce 30 percent of all nighttime fatal crashes

The states driving population grew by 614138 persons from 1980 through 1989 and over 90 percent of that growth occurred in the

Acxordiog to figures from the Department of die Registry of Motor Vehicles the number of miles driven in MassachUletIs rose from 3S2 billion miles in 1979 to 442 billion in 1989

DrunJc Drillinl Enfoc~mmt in MtlSsachuutu HtIS the Effort Staed Massachusetts Sen Ie Commitl~ on Post Audit and Oversight November 1988 See panicularly discussion on pllges 6 to IC

IRS Facts 989 Insurance Institute for HighVi~y Slfe1y

gt~middot14 [December

80 81 82 83 84 85 Fiscal Year

MA Dp~tllnt of Rftnu 7180 Snet Po- Audit andOftloll 12180

Flaur 3

- -1990] -SENATE -- No 1900 15

-~- ~

SECTION TWO LEGAL AND AD~TRATIVE CHANGESAFFECIING DRUNK OiuVlNG

-~ -DtnuNC THE 1980s- shybull bullbull bullbull _ - I - bullbull)~ ---~ ~ ~~

lbis ~oJtre~i ~vera1 of~~e mainlegaI ilJ1d administrative _stc- ~~~~Jr(~~cri~IC-~~l~~toco~ttQi~~titk yenvi~~ It reviews -shy

~CJ lA~~dnnJtWamp_agetmiddot the developmen ()f re1)abilitation proshy-it~IQ$~aarchang~jff~~g~n~ties andothermiddotCAuiliermeasures

-~ ~~~~~~~~~ flfgt~ gt ~ gt ~~ bull ~ ~-_ J ~~~~Af~~~beight~~~middotpUi)liccon~rn abQutdnWiig and drlVmg wIraquo~h~Vi~~~ppar~n(iD ibe l~te 1970s andcentar)y 19805 iUpro~pted -shy

ii bf~~~middot~pUbli~p~rceivcent to ~ a draU9~~~ incieasevinmiddot al~oholshylt rela~e4 -rl~ ~r~besamongt~ageIn 1972tt~ st~te ~id penDitted

middot[-f~igttlicdjrSt~(fme thetale of-aicohol~~ pCojl~elgbteen Y~arS of age ~~ otmiddot91aef6 Fbe~gtpublic saw ihis change as a stimUluStoatco~ol-retated ~cr~e~lt~~- ~~ lt _

lt middotWlt~t waamp_l~ceiy~tQ be an i~rease m~he incidence ofdrunk - dri~g~paitisUhirlyamongyoung people iii the 18tC(19708 lCd~~ the

_ltf esbtisnment ~of action groups such as Motherst AgaiQst Drunk ~gt- Diwiligt~ADD) and StUdents Xgainst D~ IgtriVingiS4DD)

middotfTIitse aeti~i$f8roupsmiddot~eie- able to gaiD -media~~ntiop iii a ~aDner ~middot~ltmiddot~Jhatdwane4the public middotattentionmiddotto earner efforts to curb drunk

lt driVing gt - - -

~ 8Ymiddot1979~middotd~nightti~emiddotmiddot(atalcrash rate of dnyer~tw~tyyears old anctunderwas~almo$fflve times the rate of that 9fall6ther drivers This trencl~h~roUghlYmiddotmiddot alarmed the public 8ri~ a newly elected

governor had made campaign promise to changetheage at which a person could purchase alcoholic beverages In 1979the drinking age was raised to twenty years old This was the fiiSt ofseveral legisshylative initiativesdesigned to reduce drinking and driving in Massashychusetts The drinking age was once again raised to age twenty-one in 19848

6 Acta of 1972 Chapter ISS Section 2

~ Acts of 1979 Chapter IS Section 6

bull 8 Acts of 1984 Chapter 312fmiddotmiddotmiddotmiddot

16 -(SENATE - No 1m [December

shy 7- - ~

Tb~ Impact of Legal ~bang~ ~gt-~) Throughoutthe i980s the state made s~veralmore legislative

changes t(fre4uc~ th~ incidence otdrunk driving With each of the legislative changes there wasa noticeable decrease iJidmnk driving activity In i982 the state increased penaities for drunk driving including makiilgjall sentences mandatory for a arletyof-offenders10

When the impact of this act appeared to bedeclininJ by 1985 and 1986 the state passed The Safe Roads Act in the later part of 1986

bull For an excellent discussion of past efforts to deal with this problem see Deterring The Drinking Driver H Ross revised and updated edition DC Heath and Company 1984

Acts of 1982 Chapter 373

I bull

middotmiddotmiddotmiddotf i f

p

II

2

~d~e~~~~if~er

beh~viq~~middotl

~fjmiddot~tftJlt

~r i-est~a~Cmiddotmiddot

-

~~ tmiddot ~ gt _

~

gt

arresihi

-~~0--middot~middot

bull ~statisti~y~o

_-0 ~ lt - _ bull ~

~NATE - No 1900 17 - -

~ Thejn~~nto(TheSAre ROad~A~t was to make adjuditati~nfor drunk an~tmiddotmiddotmak(Pe~aIties more middot~~middot~bl f~t as recentmiddot

anaJYl~~~tof~d~8teth~middot~sutanc~tHatjudamp~entwQ~ld~_swift anti~e~ri is th(~O~L~n~~iye Yay t9 b~ve C JJipact ~n p~blic

~~~ ~lt -Yo ~ ~ gt lt~ loJ~~l~~y1 ~~Os~publiccoricepi a~o~tdmiddot(lnkijriyeningalS() affected

themiddotat~fdes~~(ineP911middotmiddot~4 tli~ltc~uits~~t~i)Yete~atlve ~~4~~k~~~tiyen~~ )~i(jii~r ~oi~pletpeni ne~rsfrae~~sUcl1 ~ tbe use

~gmiddotmiddotmiddotoa~ltmiddotbl~Cksmiddot and t~e 4~fjsi()n ~y tlie-Al~o1ionc B~~~tg~~~h~~lComm~iop 0 cuit~ ~~a~ho~~_ inD~ arid re$iauTl1ifS1i~~Qr~bvet middot~coJJrtmiddotmiddotdeciSio~s i~g~ng the liability of i)i~If~(di~ts)or~~iVing dnDJier-s Wh~) w~resugtseqiently jnvolJdin ~ authmof)J1~~t8$lje~ middotht4t ~ siPmcant imp~t on the willingnessmiddotor cortimercW est~blis1iIDentS~ middottomiddot serve aicohol1c ~veragesmiddotmiddot without

~ r~middotmiddotltmiddot ~ t

~-~~~ ~ ~ ~ ~ middotfmiddot

middotbthermiddot~9wlteftn~UreS ApiDStmiddotD~priverS _-~_ ~~ ) p $ ~ p -

Inere~gpubli~concemmiddotapout drunkdriving alsolcentd to a~tronger

fOcuS-bnihe c(ninterii1eaSutes~aicen to limit druDk~diivihg during the - _ HI _ ~~ 1 - bull

1980sinese-ine~i~ tyigti~ally fall into ~hreemyenn categ~ries gt ~~uilkdtiveis olt~~g eVidencemiddot thil~middotth~s-e d~Veis ~

~tuanydrunk ~~rpe~aliiingdrun~ drivers ~ i_ ~)r0 ~

Dr~tirivJDI ~ri~s ~

jUs~ ~~the s~atjsilcsmiddotdein~nstrate a dr~p in drrinkdriyh-tg~actiyity iiid)catethafdrunk drivingarrests fell off dildng the

past d~caa~A~~rdjJigmiddot ~t~~ t~e middotNatioJial HighwayTtaffic-$8fety Admipl~iiati~iJ~middotmiddot~e natiQq~t peak in drunk ~ijyqig eJifdrcement

activityoccurre4 in 19~~when aInt0st 2 iliiJli~ii Pt~ple - approxjmiddotmately ti2 percent~o the nations li~enSeddrivers ~ were

middotarreste4IoJmiddotdrtintltdriving Nevertheless t~e Natio~~rligh~ymiddotSafety Admilfs~ration~stimateS hat even during the p~k years of enforcement police nati6DaIiyapprehendedmiddot only 1out 0(500 people who wercdriving under theinfluence of alcohol atamiddotgiven time

According to infonnatiol1 frtgtm the Office of the Commissioner of Probation enforcement in Massachusetts peaked a little later than

Nichols JL and Ross HL Th~ Eff~elivtM$$ 0 Saneiomor DWI Oftndns paper presented at the International Conference on Alcohol Drugs and Traffic Safety October 1989 Chica80 Illinois

204 CMR 403 adopted December 10 1984

-~

c

--

~

lt

gt ~

- gt

01

19 bull 1 I

39~9i2 - UOS~ 31~1700 40251100

79l

180

SENATE shy No 1900

I ~

~ IS74 - 2S87 I

291C)ooQ - i 36414oo

~

DUlIAreSh ric~sed Driv~n

1990]

Amiddotti~t Rate per ~ ~ l~~DriYers J 1~B7 shy 710 ~

r - 1 ~- ~+ - - - ri

- SO~e ~n~tC P~st- _AUdit and~v~iBht

r-~-middotgt7~ bull ~ ~ ~ 1~ ~ ~

i~gsc~ gt middotOL gt bull bull _ Themes~iratcdncrea$ed263 percent from 1970 to 1984 from

~ shy ~- iai~~lO bull~ariestsptriOOoIicen$eddrivers~~-_ ~ _~ ~~lmiddot ~ ~ gtshy bullbull - __

_ ~ - Be~weiit198()-and 1984 -~he drunk driving arrest raie rose 47 ~ bull ~tf1~t 4 _ bull bull bull - 1

pei~nt ~9ntiiluingt~e~PQsitivetrerid established-d~g the two S p~e~~pifii~yearpeii~ds - shy gt - -~ S~t~84~~arre$ti~t~ h~ d~cIined 24 percent

Tfi~~ii~tff~t~~t-i~OOo licensed 4rivers ini989 (791) is only gt 1pound~nffil8her tbijiit~e i98() rate~_ -T

_ ~middot~--I ~ - 1 _ ~ bull bull bull ~ thF~ ~~~com~tmg explanatio~ for the 24PerCent~c=Crease in drnlt~t~g~Cyentivitysince 1984The t-rstexp~tion

favoi~qbYanu~ber-ofpoJice admiJiistrators is that P8st~nforcement and acfjap2eindQver bChavi()r ~ responsible for the CI~rCaSing rate of aq~$(~~ According to th~ theQry there are f~w~~altestsbecause past enforcement efforts-have successfully deterred d~ driving so

that there are fewer drunk drivers on the roads to apprehend There have not been any local studies to test this explanation~ but few safety experts have been willing to accept this type of anecdotal data on face value

19

1shy

1

1 I

~_ bullbull

~

j -

SENATE ~ No~ 1900 December

Acts of 1961 Chapter 340

14 MGl Chapter 90 Section 24f

1990) 1 lt SENATE ~ Nol900 _

-~~ ~

~i -

PenUllog Drunk Drivers

The Massachusetts system for penalizingdunk drivers includes middotlicense suspensions or revocations fines education and treatment and incarceration The penalties are graduated into three main steps such that theybecome increasingly intensive and they are determined

IS Digesl of Slale Alcohol Highway SafelY Relaled Regulalion eighth edition National Highway Traffic Safety Association

11

- ~

gt SENATE shy No 1900

-

~

[December

~

gt

See Acts of 1982 Chapter 373

c

13

i

- f -- ~ _ gt bull $ -

~i~-~~(~~ ~ ~ ~~ middot(Jey FW4iDgS~ ~ -

- ~_~ _~ ~~ ~ g- ~~ 1__ I bull J

bull ASS1~~~nts-to middotir8t offender programs hv~middot d~crea$ed 20 perceilrsincefis~aLyear 1985i mirroringJh~~~hllng auest tate

bull A~sigriments to the second ~ffenders piogr~~h~lV~deereaSed bull lo _ (

but te-middotdeclirie~has not been as sharp-as fQrthe first offender

(- ~ J)rosr~~ -~ imiddot cmiddotbullbull ~~-- r middotltThe Departme~t of Public 9f Health r~portsltthat while the

frequenCy o~adtni$~i()ns to th~ 14-day trtmen~J)r()gram has middotdecreasedover the last~five years~the demographic cJtaracteristics of fitstand $~cond offender drunk dovers have rem~ined fairly cOnstant includingtheir aver~ge age (approximately 31 ye~s)middot Furthermore inmiddot 1989 when there-were 33709 arrests 2550 drtink drivers (76 percentwent to jail in 1984 when 39912 drunk drivers were arrested 2006 of them were sent to jail (50 percent)

bull bullbull bull

17

~

~ middotc~)middotmiddot ~

~

- gt ~ -ilt c

-

bull gt

accur~~y

SENATE No~ -1900

[December - -1

sECnorit~REE I~~VESIN ~IMPLtEi)CONSENT J - po ~ _ --- ro bull

Int~ s~ctio~iof- themiddotr~o~ve 10~ka M~sa~hu~itS~ experience withf~tiilg for~lPt~xication~ nctthe implied conselli law Wcentthen e~amirttlieinw~~f~e~~~p~6(J~~ li~ on~~ain~s aDdmiddot~nmiddot

Ul~eqr~~ineDt ~syst~in ~a~~()Y~~1detltifY thieemiddotprD~~erils with - ~hcentJa~~s~tnp~~~atiQ~th~q~ngmiddoti~reflS~middotrat~1ui1ohgdet8iJl~s

middotmiddot(middot~~middotfP~~~q~I~~ac~~e~~~t~cen~e~sus~~i~~(~h~~~ ~hp ~emiddotil1e- test and faiJ~middot~iidfinaJI~tl1flack9fjdequat~iecoidsmiddotQllwhether the test was iidfu1nister~accepted middotormiddotfCieetectmiddot gt

~~~~jgtt~middotc~-ltmiddot TJ~(~ic~aeY9f1Ji~Tests ~

~7 bullbullbulll-~ - _ bull bull _ - _

Th~i~ middotis-inc~~~g evidencif that th~ tcentst pr~ltUresin place in yen$~U~~t~~u~e_lair pJa-yXor ttSt)~bjects~ft~ tb~tmiddotth~ infrared

iDaelJll~~ reqqired by the~w are accuratecanci teliable In what is ~~~~pg~I~~~~k c~e-in~~e fi~Ilt4Sat~ 6fJV~~Je~se~ v Andrew l)omiddot~m~ et ~l~Jle Supreme Co~ of ~~wJeJSeyhel4~tpat ~ch tes~~

~~c~~~~~~~~in~ ~gt ~ ~~~~ gt ~ ~ We-areconfiaenn~tcontInti~useoftheb~atfW~rwjllnot lead to unjustmiddot~~~vleti9~-The ~le~~ ~deii~ IS m9tet9ii~1~ive now t~tve(iliat ~e cbilQCe$of-ove~ti~m~tjonmiddot are ~Jaotdnarily ~

sm~l1middotmiddot middot ~fTbe b~ath~~er ismiddotmiddot)i~asSedin -i~ cQinbined pr~~ticalitymiddotmiddotampil4 use~~ssh em OJ he low side 111 a sl8nficant nu~ber ofcases in-order not to overestimate bloodmiddotatcoholin the

middotmiddotgreaies~j)ossibenumoer OfC8Ses~ Wi~e~ ~Vinlted this ~jusifiable middotmiddotiifltgtr4~r to furthermiddot the legislatures wilt ~rid middotmaiDtmefficiency in cmiddot

oiu~ystemQtJustiCeP ~ _ lt1middot~~middotmiddotmiddotmiddot ~t~ ~ ~ -~~ - -- ~

TheVqwnie tilSe is especially valu~bl~ ~ec~use ~lt)stl9f tJte leading expert~lp the ftefd~pPearcentd and teslifiea5othaftheNew Jersey court had tliebeilefjLofan extraordinarily comigtlet~ ~cord uponwhich to base ~its decision The Downie case reduCes concerns about the

and ~reliability of the breath~test middotJlJachines ~urTentIy permitted by MaSsachusetts law ~- ~

The ieliabiii~y of current technology is beco~ngless of an issue Deliberations jQ Massachusetts can ther~fore f~cus on whether the state wants accurate evidence of alcohol impairment and to what extent it wants such evidence not how the test is administered or whether it is accurate

Stall of Nlw Jersey v Andrew Downie e al 569 A2d 242 (NJ 1990) page 251

25

r J I

bull ~J~i~t Ri ~ gt i~mrmiddot1 ~ middoti~~~~ lt~~~~~$ ~~ ~~~a~~mber) (lIe~fet) middotSiilpeDsl~as ~UI~~its~Cn$ 1

- middot~I986~ middot38iO~9middot - 9449 middot2S NA J I middotmiddott~~l~ t~a8J66o c ~~ 13510 36 2608C)middotd

middotmiddotI~~~J~ i~~~~l~ 3~C ~~ml

1middotgt~~atePcrst A~(iifil~CI oVCrsi8h middott cStima te ~ ~ -I

sect~lIlc MA~J5~centlsirY ~pdotor ~Chi~ICS _ ~l I ~~ gt1 i

~ 1

Ij~~~~~~ qgt ~~~ceJ986~middott~ep~rC~iltage of pe~onsr~fus1Dg~o J~e a breath

orJ)loOd~tes( aft~r arrest for drunk dtiving hasJncreased 44 - p~~~n~lrising f~Qll2S percent to 36 ~rc~rttlt

middot ltOut of33imiddot7~ p~~pl~ -yenr~ted -fo~ dru~dri~i~gj~Massachushy 0 middotsettsciuiiJig-198~12279people refused to take abfeath or blood test -and~()nly U~639 actually took a breath ormiddot bl~od test arter ~ JliTestmiddotmiddot -

bull Registry ~tMotor Vehicles and Office of Alcohol Testing reports do not indicate and cannot account for whether or not 9791 of the states 23918 dnitlk driving offendersin- 1989 were offered a breath or blood testand whether they took or refusedihat test

26 SENATE - No 1900 [December

Ie Of the 11639 offenders who consentedmiddott~ a ~~eath or biood test in 1989o~y6998 haeJ theirJicensessus~middotnded under the provi- sionS of~he-~aamimstraiivePerse role

There ~r~-three~~se~o~ pr~bienis jItlieM~~~b~~etts implied consent ~trategy Firsimany offellders are tefusittjto take a test

~ 1~~~~~~~1~~~~ ~t~~ t~1~~4la~e~~e~ fir~t offe~ders ar~~~soretusing~o t~eth~eSF D~ng thepcriodlt

froQll9ampampto-1982)ii~)1mrber of people refuSing teiake the test has rise~ 44 p~r~ent froJl2S percent of those aITested1t) -36 percent of

those arrested gt ~ - bullbull

~ The iniat~forinfor first a~d ~~c~rilaquo(offe~(etproampraritsoffermiddot middot8ddtiQna~vid~Jice- diat the proportion or-clients refUsing middotto take a

~br~at~ tcentsectt~~ter middotmiddot~IT~~tmiddot ~as risen sharply Alice~ t981 andsecond p~ngers il~e)nu~h~orelikeryo refus~ to take~he middottestmiddot During

calepdar ~~rmiddot1989~ percent ~f the second- offendcrs ad~tted to the i4-ltiyiJogran1reported thalt~ey hadiefus~to take abreath

~ bull 0 bull _ bull bull

test c()mp~ to a 33 percent nite for flr$t~offen4eIS ~ The CoDinu)nwealtIj therefore~ must prosecute 8Imost two-thirds

of its drunk drivers without scientific eViden~ - cd imp8irment Mo~eover~J~e pr~s~~i~penalty structure is~i~~ffecii~e~I~ca~mgthe

vast majorityof dninkdrivers to ~onsend~the ~r~th t~~t Second roughly oile-tbird ofthosewhp~taketb-e bteatbmiddot test and

arefoundtohave alllgh blood aicohol conce~tratioiaren~(getting their licenses suspended Of the 33709 peopie ~~lor drunk driving in MaJossachusetts duIjng 1989 onlyOne-third were documentedHo havetaken a blood alcoh()tteStaftetartestOf those who were dricume~ied to have taken the test (rQtU the Commonshywealths testing experience we could estimate tha~IO800 of these individuals would have had a blood level conCentration of at least 010)8 However datfl from the Registry of Mot~~ Vehicles show that only 6998 persons were suspended under the middotmiddotadininistrative per se provisions All 10800 of those who would have tested above 010 percent however would have been subject to an immediate license

Accordinl to data from the Office of Alcohol Testing only 63 percent of those persons tested durin fiscal year 1989 and 62 percent of those per50m tested during fISCal year 1990 recorded test results of

BACs below 010 percent Given these results it is likely that of the 11639 tests administered in 19Z9 10800 would have BACs higher than 010 percent

SENATE - No 1900 27

suspension 81 aiJai~~e~~there is no ~1earieasonfor the states failuftnO suspen(J the licenSes of Offenders Th~third pio~~em W(~hthe statesimplementatlonoftbe implied

~ consent law is~lli~p~o~ie~tr~cor4 ~eep~ng p1cent riu~ber of people who refuse thehteath~iYi~fan(fthosewho takethe test~c~ouni for only10S perCcent~t9(tat~~~~irestslt ~~very ~isl~rbi~g t~~t_ the state ~l~0~acc9ui1~fqr~t~qpL~Opercent ~I itscaSeSltt~~ ~ gt~_

Sorn~Qf-tht(~uiirepq~~d casestn~y~ hav~ bcent~J)middot~p cit~~mstaJices wheii~~~poli~~iriad(~aij~~ts gtwithOut offerbigtbe tesi niis oCcurs

-J ~ r middot~middotmiddot-i~ middotr~ - __ r - - - -

wh~~ ~secteCp~~~ofic~r ~~np( ~v~ljPJ~ t~_ ~it_n~~~~h~ ~esliHr wheremiddot thercent it~no qualifiedbreadttest oper~tor prese1itcFhi~oC(ursmore

middot~~ f ~ ~ bull - bull ~ bullbull J - - bullbull ~ _ j J bull bull _ bull bullbullbullbull shy

fr~qu~ritlYin_~PIaJ~r~pat1ments Tlielaw r~quir~llfa(iirtJl~)vent

thatt~~lis~~J~fu~~~gta-~cp~~ical test- wh~n~qqe~ted tli~ officer L~c Jiii~gfli~treq~~sfsli~lf~piJllediately prepar~ a~ptfenlepqFrof s1ch ~ ~ ~ jrrefusaIarid~ thtfthis r~phifmust bet end()rseltt6y~tliirdpeison ~who -~~-~~bad i~iiesseltl jJ1~refu~Waowever~hetej~nsect Way Q~o~what _-

r ~ tOpartQfJhe 30middotpe~ntojdie unreported casesis1111Ci tQ t~i~Teason~2o lt gtj q ~ltmiddotgtgtigt lt ~-

~ ~i~ SECT10N FO_~ s~~~~~y ANDRECO~~~~J~r~~N~ Cle~rly the G6Q1ni~n~ealths comQ1itDen( ~~diu~~ driving ~iet1tnce hasti~n i~~oya~~~e s~bst~tial~a~~ sfifssf~~Glt~n~es

10 law~ and recentc()urt de~ls10ns aff~tm~ ltabiAty~for d(Unk dnv10g -accid~iltShave h~(f asigl~ant influence on red~~iiig~r11nk4riving as diq iip~reAAe~rl~welif()rcenient The Com~dilw~a~li~s~~uccess is

also ~itti~utahdo strongpuhlic awareness andconce51L~(ltliedeshydine indrinkll)g~~and thechanging demographicsOf (lie dpving popuI~tion middotfmiddot

Alsltgt in spiie6f noticeable decreases in sevetal~n1nk driving countermeasuresduring tlle latter years of the decade state efforts to deter and identify drunk driving during the years 1980~to 1989 far surpassed the efforts made in the preceding decade (see Table V)

9 MGL Chapter 90 Section 24(1)

20 The Commonwealth must address the problem of circumstances arising when there is no witness to a test Just as local fire departments frequently rely on mutual assistance from other communities police departments must make arrangements for mutunl aid cr for centrJlizeltesting of drunk drivers especially in the more rural areas of the state

SENATE No 1900 - ~

10 II 14

Drunk Driving Arrests 0 bull bull bull bull 0 bull 0 bull bullbull 18 bull bull bull bull bull bull bull bull

--

-

[Deeembel

shyj-

~ ~

7

middot t

1990] y SENATE - No 1900 -

be ~ea of ~ -

For a full listing of the reports on drunk driving by the SemIte Committee on Post Audit and Oversigh~

see Appendilt A I

SENATE - No 1900 bull [December8

~ SECTIONONE MEAStRlNG ~LCOHOL-REtATED FATAL CRASHES

This seciion qef~~s drunk driving a~~ the~ tt~es the changing rate of a1cQhol-r~latedfatal cras~ in Massachusetts ov-cr the past ~decade -It ses ~tW9 $tirrogaie ~e~uies~of d~ drivmg ~gh~time d~atal ~qtQ4toQil~ ~rashes and asubStCltr ihi$ gfOUP~ single car n~ghttiihefata1Ci~hes -

p~~~~+( y 1 for thep~rpqses Qfth~ ~poJ1 dru~J(dtiYi~g~me~sthat a person

ismiddotopeialmg ~~jii~tor- yehicle witli a~blQ~)~L al~ohQf middotcltgtncent~a- tqI1 (Q~~ otO~()~percent or $Ofe Thjs~tlie le~lat whicha~son cap-~~)~ aTged~~n thec~iine of ~rlvitig~nder ~~bemiddotiPfluenCeQf ltquqrlt DU~L)i M~acluis~tts ~Bti9~~Y~ thelenlJodhis offense is ~djL~irigwhile middotiltoxi~ted~(DWI) ~ ~bull~ bull lt

)f~~1~iSQnop~raie~ a ~t~~~~l~l(wiha~~ of OlQperce~t or mo e~ Massac usetts -law raISes a pr~$QIDptJonmiddottbat thep~son IS

ctrunk7 tn~factmiddot~piaemlologicaI st-lid~e~Jiave sh~wn thilt~lie risk of an autofuobile~)ashmiddotbegirismiddot to ~~ signijicantiy wit4~ blooo alcohol

conceJitraiion oL90Spercent so the sta~ftoiy thresholds are qu~te t ~~ ~ - lt shy reasona~I1e- ~~_ bull A 150PQund~rs~n would have to lirtiitJiisoih~~-drinkjhgtono

more tii-an one lJrll1k p~ihour to aV6idilmiddotbJ(ntdwcohollevei of005 peic~~~~ r~a~~ia~IQod a~cohorley~l ~~Q~ (ORer~ilt li1s ~~me i~o pound nCfS9n w01ldmiddothave to cons~me$eyendrmks ~~eN~fourhour ~~i~d~l~4rinyen~~sequ8I to oemiddotQ~ce of tltO~ pro~fWh~~k~y~ ~ three ouncegl~of yt1tleior a~welve ounce cont~l~r ot~t The average BACotthQse atre~ted for drunk driving iIi MaSsachusetts during 1989 was 017- percen_t~ - ~ gt

shy

Measui~of I)ru~~Drlving ~ -

The best measure of whether or not a driver has consumed alcohol prior to an automobiie crash isto measure tlie drivers level of blood alcohol concentration at the time of the crash Unfortunately BAC evidence is available in only half of fatal crashes in Massachusetts at this time and several years back the information was even less complete

9 19M SENATE - No 1900

WitbQUtreliblcentBA~data~~echose to uSe tw6 surrogate measures to approximate ~he nl1Qi~ of fatal au~omobiIe craShes in which alcohol was illyolved~ nighttime fat81 ~ut6mobile ciasheSand a subset

of thiS Jne8sut~~rljghttitesectrngle Car f~iatcrasti~~ (cr~hes1~tolving ~only ~~ v~hicie~ No(e~i) ~~tal ~ig~i~ime ~utQiilobiie ~rash or

bull ni8htn~ ~~~gl~~~ cr~JjJi()w~vei i-middotca~~~Y ~rdrver ~~o has 0middot~ c~I1amp~~a~~~li91PQor rYisibilify)lIiCllowettiMfi~ vohimeare also

bullbull middotltrmiddotmiddotlt imJ)orlahtcliaec(efutic~~ nighttime (lrlVlng~lt7lt ( gt -c ~~ N~~~ii~a~~~~~iem~~~~a1middottr~ficmiddots~~~ymiddot e~Re1t~~~~t~~~~~ these middotsp1emiddottmiddotW9~eyenyre~ -th~t we use t9 st~dy d~4nV1~gp~ttemsIn faci~~6ut exa~tionmiddot ~fh~ ~cordsIrommiddotthemiddot ~~~~use~tsJ~egistry ~ ~ ltQf Mo~~~y ~~~~o~ ~t~~l~r~l xea~ ~~nrrrin~~ (1l~ d~yers -i~ car - crash~J)c~u~g~~Veen~he ~o~ 9f-6()OP1D1 ap4middot5S9 am are~

2- c ve~iileJyjtci~ti~~~-p~sitivel~~~JSofampl((Od aIC9~breoricentration Theidatfi)lisf1~p beiw~nfa~al~r8shesmvoivjhgdrilnk -(lovers and the tiq1centqfmiddot a8pound~ re~~ci~d in~ation~ ~ta 9f 19a9(~ ApPendix

if Bgt~ Accor4inSI(~~~se nationaldata inore ~lialhaIfof fjtamp11Ylnj~ied bull middotdrivelillfcraSJi~s~middoto~~mngmiddotbetw~en 9~~~Diand S~ ~Ip~ ejcUbit

_ BAC~lJ~)~rmiddota~r~~~~o~~riie~tB~tweeiimiddotmi~~~t~~~~~~~~~ the~ number nses tomiddot 70cperte~t Moteover the datamiddotshow-thatm smgle

car crasneS occUQlng behvee~ 900 pm and 559-am 70middotpercent of Jat~iyi~jiired~~versexhi~HaAltsat~rab~vfO10~rceJi~2

-_gt_-~ lt~lt~~~ _~-) + )~f~ gt - ~lt _- -- ~_ --~L--

Nighttime Fatal A~tombbUemiddotCrashesmiddot bull Igtatmiddoto~~ightfiriie f~ta1-aut~~obile~rashess~ggelttlia there has

been amiddotaecreaSe~indrUilic(Jtiving inmiddot Massachusei~ssi~~e~1979 For thismeasure~ w~ an8Iyzed th~ frequency of nighiti~e(ffom600 pm

- to 559 am) ra~M a~toriiobne crashes during the 1980s-We also compared the~Umber ofnighttime fat~ crashes wiihthenum~r of

dayti~~ra(a1 cr~h~s(se~~fi~re I and AppendixC) Comp~ng nighttime ~rashes withdaytime crashes coptrols for

overall changes in driving behavior changing road or weather conditions from year to year and ~hanging characteristics of the driving population The extent to which nighttime fatal automobile crashes exceed daytime crashes may be an indicator of alcohol involvement Moreover the extent to which trends in nighttime fatal

2 Facts Insurance Institute for Highway Safety 1990

~

- tmiddot

-~

~ 84 46 8~ middot~8l t 8~ ~ 89 Y~ar (

J bullbull __ ~r

~

SENATE- No 1900

--shy~--~~~~-lt~~~- gt- ~~ ~_-_-~~-~_~- --=shy

~~lt ~ middotmiddot1middot - - shy gtr~-

l bullbull

$--19 -eO~(81 82 shy ~

~ tmiddot

- ~ ~ ~ - t bullbullbullbullbull ~ - shy-_ ----r~~~~

10

-I -

Single CarNighttim~middotFatfCrashes Datil on nighttime singlecarcrashes also sugges~that the~ebas been

a decrease in drunk driving since 1979 For this irieasure we analyzed the Dumber of single car fatal crashes occurring between 900 pm and 559 am during the 1980s (see Figure 2 and Appendix D)

~( r- ~ ~ ~lIlelry olotar Vlllltle -

~~ f~ Poet -~n ~_nd Ove ~O

-FllilreI ~ - --- y - ~

I It w -gt bull

~ ltII bull - ~ s ~ -

jr~-crash~s do noisect~~~ro~middottr~~dsjn daytime fatalcr~~e~ rit~~ alsobe an bull + -indicator of cllilnging rates of alcohol involvem~nt

---- c bullbull

~middotmiddot~~~crmiddotmiddot r

-~~i~tn~~~~rmiddot middot~V) 2t- if bull Nightt~~-f~tal ~r~~es reached an all-time highin(f979 w~th a

t9~~lQF6~9fatal crashes but the numQerQ centr~slies declined dupng ~Ii~~~x-t 4e~~ulet reachin~a ten year1owof)S6 crashes in 19~9~ a 43perqentdrop _ ~r

bull Wille nithttime (fita crashes were declining betwe~ll 1979and -1989t theDumberofdaytimefatal crashes rose 14 percent shy

c

11

bull

bull SINGLECAR NlGHTTlMSiFATAl CRASHES ( 900 pm ~659 middotmiddotmf shy ~gt 1917--1989middotlt

r - ~ r ~ -

-

I

~ - ~ 1101__ ~~~~ _-~~-Lo-~L--~----_I--~~_ ~ lt ~ 78 71 oeo 81shy

~) r-~ pound~~~~~jtS~~~Lt~2middotmiddot ~ gt -~1oJ ~It ~ 0- 12180

~~~~~ [lt20 gt ~ $ipgl~ c81 DJgh~tiple fat craShes froni 336 crashesin 1979~

io~iin1989aj4Z percent decrease bull ~~t lt~ ~~ ~~r ~

shy -- ~FtaI~CJa$hRata~ -- middottmiddotmiddot

~e -i~~ Ji~ ~trol f~r middot~~~gesJn the numbe~ otmiddotdriye~$on the to~ we f caloulatecfthe faUimiddotciash-nue fOt everYIO~OOOlice~ cldVeIs both

(otMttinefattiicrashes and for siDgIe~ nighttim~ fatar~aslies -To~~~hether t~tCbasbein areducjonmfatamplldeseveJi-among--die y(iungest dri~en we- collect~ more ~ltCifiC d~ai forone~ofthe ~urtpga~sect JJ1~8s~~S ~(drunk dyenng -D~ttim6~fi~-c~ -Cr~hes middot-ACCtltJi~g totoe age of the automobU~opera~01linyqlved We e~aminect two agecohorts of drivers driyeri whowere twenty yearsof ageai)d driversmiddotWho were nineteen years-_ofagt and under and thenre~Wed the frequency off~tal cnlshe~~Qry~u~dri~~in 1979 198j~ 19~5gt and 1989 To account Jor poptdatlon c~ges we converted the delta to a rate fOf every 10000 licensed driVers (see Table f)

-

~ i

f J

-

f shy

r- - ~~

-

middott

i-

- - _ _ shy ICe]FDiding -- - shy bull - -shy-

tmiddot ~ r ~ ----- bull

bull ~~h~ ilu~~(of njsbttime fatal c~ashes per te~ tho~and licensed driVers dropped S~_percent from 179 crashes in 1979 to 084 crashes pe~ 10tOQO licensed drivers in 1989~

bull oF

I

4 See

S

bull

ltU~gt

hmiddot~in~tIiemiddotdeC~e

middotmiddotbullmiddotmiddot

~

=~= ~

1990) SENATE - No 1900 13

bull Thef~ticmby~~fnighttimefatal crash~ a~~ng~teenage drivers dropp~d sh~iy(approximaiely 51pecent)middotbetween 1979 and

1983 - -~ ~ ~ ~ - ~ bullbull FrotPmiddotJ979 t~l1~~~tth~middot Dlght~iD~ fa~aI~t~~ ~ait~d~eased 47

pet~ltf()rtag~~middotmiddotand~5~rceQtfoiJw~tyyear oJ4 drivers bullbull - bull middotmiddotmiddot- bulltAmiddot ~-f- t _ bull bullbullbullbull ~- r f bull - bull bull bull

Iii 1919esjliJecarmiddotnightt4D~Jatalciash-rateforevery 10000 ij~~~f4ri~~~~~~middot O9S~by~he en~Q~ ~~~~ t~emiddotiate had fallen JomiddotO4~~per -l6~Jl~~d dJjvers a52 ~rcentdrop ~

j-Ji-~~(gt r middotmiddotmiddotWbt~ebullbullbullStiQ -~

~ r~ (middotmiddotI-_$~~ -~ ~Jr--lt- bull ~~ lt--~ bull

middotThe~lw~s1rrogt~middotineaSuresmiddot of middotdrunkdriVingmiddot bQtb suUest that fthere~~~Jiie~ middotmiddot~libStantial deCr~~~in aicori()lreia~a fatal crashes middottsin~~1~1jr~foiiui~teJY~ ~lt~rge P~ ofjt~~~d~iine~ocCJJt~ ~arly

~Qo Cf the deqMtS e~flyg8ins did not erode over Cii()he i~niaigderJof t~~ ~l~e~eveniJ1ougli~lj~r~ was sigiilil~~( growth

middotmiddotmiddotmiddotmiddot~middotildhe~i1eofdl~ dfiyening populati9nan~ middot~middotmiddotsl~lcentampD in~~e~ in the YIli~b~~1~e)nil~~rlye~~ In f~Ctpre~aiymiddotfig~s suggest that r~o~par~d~to-l98~mgbtti8)e fatal crashes~~ontinue(H~ Qeclirieduring tli~fuSt~itmiddotmpntl)~fJ~ ~ middottmiddotc lts~middotmiddot

Putjai~elti ~~C~ ~at~on~ (~ta indc~lei~~t M~sachusetts had areI~iv~~etyrecotd~tJi~~ was ~ongthebestiriJhecountry A~ong

_ ~~~~ JJor1bull s -1_ bull bull

~e highlyj)(jpul~~d)lidustrial states onlyNew middotJe~ey hadmiddot a lower ni8bttjmeJai~ciaSh t~te than ~~sachusettsmiddot 1 ( ~

middotRegaidles~ oftlieIeiuction in QighttiDicentfitalcrashea among young drivers since 1979~ rialion81 dat~ iridicatethat thedrivers whomiddot are

_ ~ - ~ prohibited~ by l~ (9in purchasin~ or beiJlgpublic~yserved alcohol are still fo~r time~ JtiQr~ likely to be involyed ijla nigltttim~fatal cr~h than the rest of the driving publics WithinMaSsachu~tts in 1979

these operatQrs made-up 10 percent of the dnVirigpopulationmiddot yet accounted or34 percept of nighttimefatal crashes today they make up only 9percent of all drivers yet they produce 30 percent of all nighttime fatal crashes

The states driving population grew by 614138 persons from 1980 through 1989 and over 90 percent of that growth occurred in the

Acxordiog to figures from the Department of die Registry of Motor Vehicles the number of miles driven in MassachUletIs rose from 3S2 billion miles in 1979 to 442 billion in 1989

DrunJc Drillinl Enfoc~mmt in MtlSsachuutu HtIS the Effort Staed Massachusetts Sen Ie Commitl~ on Post Audit and Oversight November 1988 See panicularly discussion on pllges 6 to IC

IRS Facts 989 Insurance Institute for HighVi~y Slfe1y

gt~middot14 [December

80 81 82 83 84 85 Fiscal Year

MA Dp~tllnt of Rftnu 7180 Snet Po- Audit andOftloll 12180

Flaur 3

- -1990] -SENATE -- No 1900 15

-~- ~

SECTION TWO LEGAL AND AD~TRATIVE CHANGESAFFECIING DRUNK OiuVlNG

-~ -DtnuNC THE 1980s- shybull bullbull bullbull _ - I - bullbull)~ ---~ ~ ~~

lbis ~oJtre~i ~vera1 of~~e mainlegaI ilJ1d administrative _stc- ~~~~Jr(~~cri~IC-~~l~~toco~ttQi~~titk yenvi~~ It reviews -shy

~CJ lA~~dnnJtWamp_agetmiddot the developmen ()f re1)abilitation proshy-it~IQ$~aarchang~jff~~g~n~ties andothermiddotCAuiliermeasures

-~ ~~~~~~~~~ flfgt~ gt ~ gt ~~ bull ~ ~-_ J ~~~~Af~~~beight~~~middotpUi)liccon~rn abQutdnWiig and drlVmg wIraquo~h~Vi~~~ppar~n(iD ibe l~te 1970s andcentar)y 19805 iUpro~pted -shy

ii bf~~~middot~pUbli~p~rceivcent to ~ a draU9~~~ incieasevinmiddot al~oholshylt rela~e4 -rl~ ~r~besamongt~ageIn 1972tt~ st~te ~id penDitted

middot[-f~igttlicdjrSt~(fme thetale of-aicohol~~ pCojl~elgbteen Y~arS of age ~~ otmiddot91aef6 Fbe~gtpublic saw ihis change as a stimUluStoatco~ol-retated ~cr~e~lt~~- ~~ lt _

lt middotWlt~t waamp_l~ceiy~tQ be an i~rease m~he incidence ofdrunk - dri~g~paitisUhirlyamongyoung people iii the 18tC(19708 lCd~~ the

_ltf esbtisnment ~of action groups such as Motherst AgaiQst Drunk ~gt- Diwiligt~ADD) and StUdents Xgainst D~ IgtriVingiS4DD)

middotfTIitse aeti~i$f8roupsmiddot~eie- able to gaiD -media~~ntiop iii a ~aDner ~middot~ltmiddot~Jhatdwane4the public middotattentionmiddotto earner efforts to curb drunk

lt driVing gt - - -

~ 8Ymiddot1979~middotd~nightti~emiddotmiddot(atalcrash rate of dnyer~tw~tyyears old anctunderwas~almo$fflve times the rate of that 9fall6ther drivers This trencl~h~roUghlYmiddotmiddot alarmed the public 8ri~ a newly elected

governor had made campaign promise to changetheage at which a person could purchase alcoholic beverages In 1979the drinking age was raised to twenty years old This was the fiiSt ofseveral legisshylative initiativesdesigned to reduce drinking and driving in Massashychusetts The drinking age was once again raised to age twenty-one in 19848

6 Acta of 1972 Chapter ISS Section 2

~ Acts of 1979 Chapter IS Section 6

bull 8 Acts of 1984 Chapter 312fmiddotmiddotmiddotmiddot

16 -(SENATE - No 1m [December

shy 7- - ~

Tb~ Impact of Legal ~bang~ ~gt-~) Throughoutthe i980s the state made s~veralmore legislative

changes t(fre4uc~ th~ incidence otdrunk driving With each of the legislative changes there wasa noticeable decrease iJidmnk driving activity In i982 the state increased penaities for drunk driving including makiilgjall sentences mandatory for a arletyof-offenders10

When the impact of this act appeared to bedeclininJ by 1985 and 1986 the state passed The Safe Roads Act in the later part of 1986

bull For an excellent discussion of past efforts to deal with this problem see Deterring The Drinking Driver H Ross revised and updated edition DC Heath and Company 1984

Acts of 1982 Chapter 373

I bull

middotmiddotmiddotmiddotf i f

p

II

2

~d~e~~~~if~er

beh~viq~~middotl

~fjmiddot~tftJlt

~r i-est~a~Cmiddotmiddot

-

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~

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-~~0--middot~middot

bull ~statisti~y~o

_-0 ~ lt - _ bull ~

~NATE - No 1900 17 - -

~ Thejn~~nto(TheSAre ROad~A~t was to make adjuditati~nfor drunk an~tmiddotmiddotmak(Pe~aIties more middot~~middot~bl f~t as recentmiddot

anaJYl~~~tof~d~8teth~middot~sutanc~tHatjudamp~entwQ~ld~_swift anti~e~ri is th(~O~L~n~~iye Yay t9 b~ve C JJipact ~n p~blic

~~~ ~lt -Yo ~ ~ gt lt~ loJ~~l~~y1 ~~Os~publiccoricepi a~o~tdmiddot(lnkijriyeningalS() affected

themiddotat~fdes~~(ineP911middotmiddot~4 tli~ltc~uits~~t~i)Yete~atlve ~~4~~k~~~tiyen~~ )~i(jii~r ~oi~pletpeni ne~rsfrae~~sUcl1 ~ tbe use

~gmiddotmiddotmiddotoa~ltmiddotbl~Cksmiddot and t~e 4~fjsi()n ~y tlie-Al~o1ionc B~~~tg~~~h~~lComm~iop 0 cuit~ ~~a~ho~~_ inD~ arid re$iauTl1ifS1i~~Qr~bvet middot~coJJrtmiddotmiddotdeciSio~s i~g~ng the liability of i)i~If~(di~ts)or~~iVing dnDJier-s Wh~) w~resugtseqiently jnvolJdin ~ authmof)J1~~t8$lje~ middotht4t ~ siPmcant imp~t on the willingnessmiddotor cortimercW est~blis1iIDentS~ middottomiddot serve aicohol1c ~veragesmiddotmiddot without

~ r~middotmiddotltmiddot ~ t

~-~~~ ~ ~ ~ ~ middotfmiddot

middotbthermiddot~9wlteftn~UreS ApiDStmiddotD~priverS _-~_ ~~ ) p $ ~ p -

Inere~gpubli~concemmiddotapout drunkdriving alsolcentd to a~tronger

fOcuS-bnihe c(ninterii1eaSutes~aicen to limit druDk~diivihg during the - _ HI _ ~~ 1 - bull

1980sinese-ine~i~ tyigti~ally fall into ~hreemyenn categ~ries gt ~~uilkdtiveis olt~~g eVidencemiddot thil~middotth~s-e d~Veis ~

~tuanydrunk ~~rpe~aliiingdrun~ drivers ~ i_ ~)r0 ~

Dr~tirivJDI ~ri~s ~

jUs~ ~~the s~atjsilcsmiddotdein~nstrate a dr~p in drrinkdriyh-tg~actiyity iiid)catethafdrunk drivingarrests fell off dildng the

past d~caa~A~~rdjJigmiddot ~t~~ t~e middotNatioJial HighwayTtaffic-$8fety Admipl~iiati~iJ~middotmiddot~e natiQq~t peak in drunk ~ijyqig eJifdrcement

activityoccurre4 in 19~~when aInt0st 2 iliiJli~ii Pt~ple - approxjmiddotmately ti2 percent~o the nations li~enSeddrivers ~ were

middotarreste4IoJmiddotdrtintltdriving Nevertheless t~e Natio~~rligh~ymiddotSafety Admilfs~ration~stimateS hat even during the p~k years of enforcement police nati6DaIiyapprehendedmiddot only 1out 0(500 people who wercdriving under theinfluence of alcohol atamiddotgiven time

According to infonnatiol1 frtgtm the Office of the Commissioner of Probation enforcement in Massachusetts peaked a little later than

Nichols JL and Ross HL Th~ Eff~elivtM$$ 0 Saneiomor DWI Oftndns paper presented at the International Conference on Alcohol Drugs and Traffic Safety October 1989 Chica80 Illinois

204 CMR 403 adopted December 10 1984

-~

c

--

~

lt

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01

19 bull 1 I

39~9i2 - UOS~ 31~1700 40251100

79l

180

SENATE shy No 1900

I ~

~ IS74 - 2S87 I

291C)ooQ - i 36414oo

~

DUlIAreSh ric~sed Driv~n

1990]

Amiddotti~t Rate per ~ ~ l~~DriYers J 1~B7 shy 710 ~

r - 1 ~- ~+ - - - ri

- SO~e ~n~tC P~st- _AUdit and~v~iBht

r-~-middotgt7~ bull ~ ~ ~ 1~ ~ ~

i~gsc~ gt middotOL gt bull bull _ Themes~iratcdncrea$ed263 percent from 1970 to 1984 from

~ shy ~- iai~~lO bull~ariestsptriOOoIicen$eddrivers~~-_ ~ _~ ~~lmiddot ~ ~ gtshy bullbull - __

_ ~ - Be~weiit198()-and 1984 -~he drunk driving arrest raie rose 47 ~ bull ~tf1~t 4 _ bull bull bull - 1

pei~nt ~9ntiiluingt~e~PQsitivetrerid established-d~g the two S p~e~~pifii~yearpeii~ds - shy gt - -~ S~t~84~~arre$ti~t~ h~ d~cIined 24 percent

Tfi~~ii~tff~t~~t-i~OOo licensed 4rivers ini989 (791) is only gt 1pound~nffil8her tbijiit~e i98() rate~_ -T

_ ~middot~--I ~ - 1 _ ~ bull bull bull ~ thF~ ~~~com~tmg explanatio~ for the 24PerCent~c=Crease in drnlt~t~g~Cyentivitysince 1984The t-rstexp~tion

favoi~qbYanu~ber-ofpoJice admiJiistrators is that P8st~nforcement and acfjap2eindQver bChavi()r ~ responsible for the CI~rCaSing rate of aq~$(~~ According to th~ theQry there are f~w~~altestsbecause past enforcement efforts-have successfully deterred d~ driving so

that there are fewer drunk drivers on the roads to apprehend There have not been any local studies to test this explanation~ but few safety experts have been willing to accept this type of anecdotal data on face value

19

1shy

1

1 I

~_ bullbull

~

j -

SENATE ~ No~ 1900 December

Acts of 1961 Chapter 340

14 MGl Chapter 90 Section 24f

1990) 1 lt SENATE ~ Nol900 _

-~~ ~

~i -

PenUllog Drunk Drivers

The Massachusetts system for penalizingdunk drivers includes middotlicense suspensions or revocations fines education and treatment and incarceration The penalties are graduated into three main steps such that theybecome increasingly intensive and they are determined

IS Digesl of Slale Alcohol Highway SafelY Relaled Regulalion eighth edition National Highway Traffic Safety Association

11

- ~

gt SENATE shy No 1900

-

~

[December

~

gt

See Acts of 1982 Chapter 373

c

13

i

- f -- ~ _ gt bull $ -

~i~-~~(~~ ~ ~ ~~ middot(Jey FW4iDgS~ ~ -

- ~_~ _~ ~~ ~ g- ~~ 1__ I bull J

bull ASS1~~~nts-to middotir8t offender programs hv~middot d~crea$ed 20 perceilrsincefis~aLyear 1985i mirroringJh~~~hllng auest tate

bull A~sigriments to the second ~ffenders piogr~~h~lV~deereaSed bull lo _ (

but te-middotdeclirie~has not been as sharp-as fQrthe first offender

(- ~ J)rosr~~ -~ imiddot cmiddotbullbull ~~-- r middotltThe Departme~t of Public 9f Health r~portsltthat while the

frequenCy o~adtni$~i()ns to th~ 14-day trtmen~J)r()gram has middotdecreasedover the last~five years~the demographic cJtaracteristics of fitstand $~cond offender drunk dovers have rem~ined fairly cOnstant includingtheir aver~ge age (approximately 31 ye~s)middot Furthermore inmiddot 1989 when there-were 33709 arrests 2550 drtink drivers (76 percentwent to jail in 1984 when 39912 drunk drivers were arrested 2006 of them were sent to jail (50 percent)

bull bullbull bull

17

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~ middotc~)middotmiddot ~

~

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-

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accur~~y

SENATE No~ -1900

[December - -1

sECnorit~REE I~~VESIN ~IMPLtEi)CONSENT J - po ~ _ --- ro bull

Int~ s~ctio~iof- themiddotr~o~ve 10~ka M~sa~hu~itS~ experience withf~tiilg for~lPt~xication~ nctthe implied conselli law Wcentthen e~amirttlieinw~~f~e~~~p~6(J~~ li~ on~~ain~s aDdmiddot~nmiddot

Ul~eqr~~ineDt ~syst~in ~a~~()Y~~1detltifY thieemiddotprD~~erils with - ~hcentJa~~s~tnp~~~atiQ~th~q~ngmiddoti~reflS~middotrat~1ui1ohgdet8iJl~s

middotmiddot(middot~~middotfP~~~q~I~~ac~~e~~~t~cen~e~sus~~i~~(~h~~~ ~hp ~emiddotil1e- test and faiJ~middot~iidfinaJI~tl1flack9fjdequat~iecoidsmiddotQllwhether the test was iidfu1nister~accepted middotormiddotfCieetectmiddot gt

~~~~jgtt~middotc~-ltmiddot TJ~(~ic~aeY9f1Ji~Tests ~

~7 bullbullbulll-~ - _ bull bull _ - _

Th~i~ middotis-inc~~~g evidencif that th~ tcentst pr~ltUresin place in yen$~U~~t~~u~e_lair pJa-yXor ttSt)~bjects~ft~ tb~tmiddotth~ infrared

iDaelJll~~ reqqired by the~w are accuratecanci teliable In what is ~~~~pg~I~~~~k c~e-in~~e fi~Ilt4Sat~ 6fJV~~Je~se~ v Andrew l)omiddot~m~ et ~l~Jle Supreme Co~ of ~~wJeJSeyhel4~tpat ~ch tes~~

~~c~~~~~~~~in~ ~gt ~ ~~~~ gt ~ ~ We-areconfiaenn~tcontInti~useoftheb~atfW~rwjllnot lead to unjustmiddot~~~vleti9~-The ~le~~ ~deii~ IS m9tet9ii~1~ive now t~tve(iliat ~e cbilQCe$of-ove~ti~m~tjonmiddot are ~Jaotdnarily ~

sm~l1middotmiddot middot ~fTbe b~ath~~er ismiddotmiddot)i~asSedin -i~ cQinbined pr~~ticalitymiddotmiddotampil4 use~~ssh em OJ he low side 111 a sl8nficant nu~ber ofcases in-order not to overestimate bloodmiddotatcoholin the

middotmiddotgreaies~j)ossibenumoer OfC8Ses~ Wi~e~ ~Vinlted this ~jusifiable middotmiddotiifltgtr4~r to furthermiddot the legislatures wilt ~rid middotmaiDtmefficiency in cmiddot

oiu~ystemQtJustiCeP ~ _ lt1middot~~middotmiddotmiddotmiddot ~t~ ~ ~ -~~ - -- ~

TheVqwnie tilSe is especially valu~bl~ ~ec~use ~lt)stl9f tJte leading expert~lp the ftefd~pPearcentd and teslifiea5othaftheNew Jersey court had tliebeilefjLofan extraordinarily comigtlet~ ~cord uponwhich to base ~its decision The Downie case reduCes concerns about the

and ~reliability of the breath~test middotJlJachines ~urTentIy permitted by MaSsachusetts law ~- ~

The ieliabiii~y of current technology is beco~ngless of an issue Deliberations jQ Massachusetts can ther~fore f~cus on whether the state wants accurate evidence of alcohol impairment and to what extent it wants such evidence not how the test is administered or whether it is accurate

Stall of Nlw Jersey v Andrew Downie e al 569 A2d 242 (NJ 1990) page 251

25

r J I

bull ~J~i~t Ri ~ gt i~mrmiddot1 ~ middoti~~~~ lt~~~~~$ ~~ ~~~a~~mber) (lIe~fet) middotSiilpeDsl~as ~UI~~its~Cn$ 1

- middot~I986~ middot38iO~9middot - 9449 middot2S NA J I middotmiddott~~l~ t~a8J66o c ~~ 13510 36 2608C)middotd

middotmiddotI~~~J~ i~~~~l~ 3~C ~~ml

1middotgt~~atePcrst A~(iifil~CI oVCrsi8h middott cStima te ~ ~ -I

sect~lIlc MA~J5~centlsirY ~pdotor ~Chi~ICS _ ~l I ~~ gt1 i

~ 1

Ij~~~~~~ qgt ~~~ceJ986~middott~ep~rC~iltage of pe~onsr~fus1Dg~o J~e a breath

orJ)loOd~tes( aft~r arrest for drunk dtiving hasJncreased 44 - p~~~n~lrising f~Qll2S percent to 36 ~rc~rttlt

middot ltOut of33imiddot7~ p~~pl~ -yenr~ted -fo~ dru~dri~i~gj~Massachushy 0 middotsettsciuiiJig-198~12279people refused to take abfeath or blood test -and~()nly U~639 actually took a breath ormiddot bl~od test arter ~ JliTestmiddotmiddot -

bull Registry ~tMotor Vehicles and Office of Alcohol Testing reports do not indicate and cannot account for whether or not 9791 of the states 23918 dnitlk driving offendersin- 1989 were offered a breath or blood testand whether they took or refusedihat test

26 SENATE - No 1900 [December

Ie Of the 11639 offenders who consentedmiddott~ a ~~eath or biood test in 1989o~y6998 haeJ theirJicensessus~middotnded under the provi- sionS of~he-~aamimstraiivePerse role

There ~r~-three~~se~o~ pr~bienis jItlieM~~~b~~etts implied consent ~trategy Firsimany offellders are tefusittjto take a test

~ 1~~~~~~~1~~~~ ~t~~ t~1~~4la~e~~e~ fir~t offe~ders ar~~~soretusing~o t~eth~eSF D~ng thepcriodlt

froQll9ampampto-1982)ii~)1mrber of people refuSing teiake the test has rise~ 44 p~r~ent froJl2S percent of those aITested1t) -36 percent of

those arrested gt ~ - bullbull

~ The iniat~forinfor first a~d ~~c~rilaquo(offe~(etproampraritsoffermiddot middot8ddtiQna~vid~Jice- diat the proportion or-clients refUsing middotto take a

~br~at~ tcentsectt~~ter middotmiddot~IT~~tmiddot ~as risen sharply Alice~ t981 andsecond p~ngers il~e)nu~h~orelikeryo refus~ to take~he middottestmiddot During

calepdar ~~rmiddot1989~ percent ~f the second- offendcrs ad~tted to the i4-ltiyiJogran1reported thalt~ey hadiefus~to take abreath

~ bull 0 bull _ bull bull

test c()mp~ to a 33 percent nite for flr$t~offen4eIS ~ The CoDinu)nwealtIj therefore~ must prosecute 8Imost two-thirds

of its drunk drivers without scientific eViden~ - cd imp8irment Mo~eover~J~e pr~s~~i~penalty structure is~i~~ffecii~e~I~ca~mgthe

vast majorityof dninkdrivers to ~onsend~the ~r~th t~~t Second roughly oile-tbird ofthosewhp~taketb-e bteatbmiddot test and

arefoundtohave alllgh blood aicohol conce~tratioiaren~(getting their licenses suspended Of the 33709 peopie ~~lor drunk driving in MaJossachusetts duIjng 1989 onlyOne-third were documentedHo havetaken a blood alcoh()tteStaftetartestOf those who were dricume~ied to have taken the test (rQtU the Commonshywealths testing experience we could estimate tha~IO800 of these individuals would have had a blood level conCentration of at least 010)8 However datfl from the Registry of Mot~~ Vehicles show that only 6998 persons were suspended under the middotmiddotadininistrative per se provisions All 10800 of those who would have tested above 010 percent however would have been subject to an immediate license

Accordinl to data from the Office of Alcohol Testing only 63 percent of those persons tested durin fiscal year 1989 and 62 percent of those per50m tested during fISCal year 1990 recorded test results of

BACs below 010 percent Given these results it is likely that of the 11639 tests administered in 19Z9 10800 would have BACs higher than 010 percent

SENATE - No 1900 27

suspension 81 aiJai~~e~~there is no ~1earieasonfor the states failuftnO suspen(J the licenSes of Offenders Th~third pio~~em W(~hthe statesimplementatlonoftbe implied

~ consent law is~lli~p~o~ie~tr~cor4 ~eep~ng p1cent riu~ber of people who refuse thehteath~iYi~fan(fthosewho takethe test~c~ouni for only10S perCcent~t9(tat~~~~irestslt ~~very ~isl~rbi~g t~~t_ the state ~l~0~acc9ui1~fqr~t~qpL~Opercent ~I itscaSeSltt~~ ~ gt~_

Sorn~Qf-tht(~uiirepq~~d casestn~y~ hav~ bcent~J)middot~p cit~~mstaJices wheii~~~poli~~iriad(~aij~~ts gtwithOut offerbigtbe tesi niis oCcurs

-J ~ r middot~middotmiddot-i~ middotr~ - __ r - - - -

wh~~ ~secteCp~~~ofic~r ~~np( ~v~ljPJ~ t~_ ~it_n~~~~h~ ~esliHr wheremiddot thercent it~no qualifiedbreadttest oper~tor prese1itcFhi~oC(ursmore

middot~~ f ~ ~ bull - bull ~ bullbull J - - bullbull ~ _ j J bull bull _ bull bullbullbullbull shy

fr~qu~ritlYin_~PIaJ~r~pat1ments Tlielaw r~quir~llfa(iirtJl~)vent

thatt~~lis~~J~fu~~~gta-~cp~~ical test- wh~n~qqe~ted tli~ officer L~c Jiii~gfli~treq~~sfsli~lf~piJllediately prepar~ a~ptfenlepqFrof s1ch ~ ~ ~ jrrefusaIarid~ thtfthis r~phifmust bet end()rseltt6y~tliirdpeison ~who -~~-~~bad i~iiesseltl jJ1~refu~Waowever~hetej~nsect Way Q~o~what _-

r ~ tOpartQfJhe 30middotpe~ntojdie unreported casesis1111Ci tQ t~i~Teason~2o lt gtj q ~ltmiddotgtgtigt lt ~-

~ ~i~ SECT10N FO_~ s~~~~~y ANDRECO~~~~J~r~~N~ Cle~rly the G6Q1ni~n~ealths comQ1itDen( ~~diu~~ driving ~iet1tnce hasti~n i~~oya~~~e s~bst~tial~a~~ sfifssf~~Glt~n~es

10 law~ and recentc()urt de~ls10ns aff~tm~ ltabiAty~for d(Unk dnv10g -accid~iltShave h~(f asigl~ant influence on red~~iiig~r11nk4riving as diq iip~reAAe~rl~welif()rcenient The Com~dilw~a~li~s~~uccess is

also ~itti~utahdo strongpuhlic awareness andconce51L~(ltliedeshydine indrinkll)g~~and thechanging demographicsOf (lie dpving popuI~tion middotfmiddot

Alsltgt in spiie6f noticeable decreases in sevetal~n1nk driving countermeasuresduring tlle latter years of the decade state efforts to deter and identify drunk driving during the years 1980~to 1989 far surpassed the efforts made in the preceding decade (see Table V)

9 MGL Chapter 90 Section 24(1)

20 The Commonwealth must address the problem of circumstances arising when there is no witness to a test Just as local fire departments frequently rely on mutual assistance from other communities police departments must make arrangements for mutunl aid cr for centrJlizeltesting of drunk drivers especially in the more rural areas of the state

--

-

[Deeembel

shyj-

~ ~

7

middot t

1990] y SENATE - No 1900 -

be ~ea of ~ -

For a full listing of the reports on drunk driving by the SemIte Committee on Post Audit and Oversigh~

see Appendilt A I

SENATE - No 1900 bull [December8

~ SECTIONONE MEAStRlNG ~LCOHOL-REtATED FATAL CRASHES

This seciion qef~~s drunk driving a~~ the~ tt~es the changing rate of a1cQhol-r~latedfatal cras~ in Massachusetts ov-cr the past ~decade -It ses ~tW9 $tirrogaie ~e~uies~of d~ drivmg ~gh~time d~atal ~qtQ4toQil~ ~rashes and asubStCltr ihi$ gfOUP~ single car n~ghttiihefata1Ci~hes -

p~~~~+( y 1 for thep~rpqses Qfth~ ~poJ1 dru~J(dtiYi~g~me~sthat a person

ismiddotopeialmg ~~jii~tor- yehicle witli a~blQ~)~L al~ohQf middotcltgtncent~a- tqI1 (Q~~ otO~()~percent or $Ofe Thjs~tlie le~lat whicha~son cap-~~)~ aTged~~n thec~iine of ~rlvitig~nder ~~bemiddotiPfluenCeQf ltquqrlt DU~L)i M~acluis~tts ~Bti9~~Y~ thelenlJodhis offense is ~djL~irigwhile middotiltoxi~ted~(DWI) ~ ~bull~ bull lt

)f~~1~iSQnop~raie~ a ~t~~~~l~l(wiha~~ of OlQperce~t or mo e~ Massac usetts -law raISes a pr~$QIDptJonmiddottbat thep~son IS

ctrunk7 tn~factmiddot~piaemlologicaI st-lid~e~Jiave sh~wn thilt~lie risk of an autofuobile~)ashmiddotbegirismiddot to ~~ signijicantiy wit4~ blooo alcohol

conceJitraiion oL90Spercent so the sta~ftoiy thresholds are qu~te t ~~ ~ - lt shy reasona~I1e- ~~_ bull A 150PQund~rs~n would have to lirtiitJiisoih~~-drinkjhgtono

more tii-an one lJrll1k p~ihour to aV6idilmiddotbJ(ntdwcohollevei of005 peic~~~~ r~a~~ia~IQod a~cohorley~l ~~Q~ (ORer~ilt li1s ~~me i~o pound nCfS9n w01ldmiddothave to cons~me$eyendrmks ~~eN~fourhour ~~i~d~l~4rinyen~~sequ8I to oemiddotQ~ce of tltO~ pro~fWh~~k~y~ ~ three ouncegl~of yt1tleior a~welve ounce cont~l~r ot~t The average BACotthQse atre~ted for drunk driving iIi MaSsachusetts during 1989 was 017- percen_t~ - ~ gt

shy

Measui~of I)ru~~Drlving ~ -

The best measure of whether or not a driver has consumed alcohol prior to an automobiie crash isto measure tlie drivers level of blood alcohol concentration at the time of the crash Unfortunately BAC evidence is available in only half of fatal crashes in Massachusetts at this time and several years back the information was even less complete

9 19M SENATE - No 1900

WitbQUtreliblcentBA~data~~echose to uSe tw6 surrogate measures to approximate ~he nl1Qi~ of fatal au~omobiIe craShes in which alcohol was illyolved~ nighttime fat81 ~ut6mobile ciasheSand a subset

of thiS Jne8sut~~rljghttitesectrngle Car f~iatcrasti~~ (cr~hes1~tolving ~only ~~ v~hicie~ No(e~i) ~~tal ~ig~i~ime ~utQiilobiie ~rash or

bull ni8htn~ ~~~gl~~~ cr~JjJi()w~vei i-middotca~~~Y ~rdrver ~~o has 0middot~ c~I1amp~~a~~~li91PQor rYisibilify)lIiCllowettiMfi~ vohimeare also

bullbull middotltrmiddotmiddotlt imJ)orlahtcliaec(efutic~~ nighttime (lrlVlng~lt7lt ( gt -c ~~ N~~~ii~a~~~~~iem~~~~a1middottr~ficmiddots~~~ymiddot e~Re1t~~~~t~~~~~ these middotsp1emiddottmiddotW9~eyenyre~ -th~t we use t9 st~dy d~4nV1~gp~ttemsIn faci~~6ut exa~tionmiddot ~fh~ ~cordsIrommiddotthemiddot ~~~~use~tsJ~egistry ~ ~ ltQf Mo~~~y ~~~~o~ ~t~~l~r~l xea~ ~~nrrrin~~ (1l~ d~yers -i~ car - crash~J)c~u~g~~Veen~he ~o~ 9f-6()OP1D1 ap4middot5S9 am are~

2- c ve~iileJyjtci~ti~~~-p~sitivel~~~JSofampl((Od aIC9~breoricentration Theidatfi)lisf1~p beiw~nfa~al~r8shesmvoivjhgdrilnk -(lovers and the tiq1centqfmiddot a8pound~ re~~ci~d in~ation~ ~ta 9f 19a9(~ ApPendix

if Bgt~ Accor4inSI(~~~se nationaldata inore ~lialhaIfof fjtamp11Ylnj~ied bull middotdrivelillfcraSJi~s~middoto~~mngmiddotbetw~en 9~~~Diand S~ ~Ip~ ejcUbit

_ BAC~lJ~)~rmiddota~r~~~~o~~riie~tB~tweeiimiddotmi~~~t~~~~~~~~~ the~ number nses tomiddot 70cperte~t Moteover the datamiddotshow-thatm smgle

car crasneS occUQlng behvee~ 900 pm and 559-am 70middotpercent of Jat~iyi~jiired~~versexhi~HaAltsat~rab~vfO10~rceJi~2

-_gt_-~ lt~lt~~~ _~-) + )~f~ gt - ~lt _- -- ~_ --~L--

Nighttime Fatal A~tombbUemiddotCrashesmiddot bull Igtatmiddoto~~ightfiriie f~ta1-aut~~obile~rashess~ggelttlia there has

been amiddotaecreaSe~indrUilic(Jtiving inmiddot Massachusei~ssi~~e~1979 For thismeasure~ w~ an8Iyzed th~ frequency of nighiti~e(ffom600 pm

- to 559 am) ra~M a~toriiobne crashes during the 1980s-We also compared the~Umber ofnighttime fat~ crashes wiihthenum~r of

dayti~~ra(a1 cr~h~s(se~~fi~re I and AppendixC) Comp~ng nighttime ~rashes withdaytime crashes coptrols for

overall changes in driving behavior changing road or weather conditions from year to year and ~hanging characteristics of the driving population The extent to which nighttime fatal automobile crashes exceed daytime crashes may be an indicator of alcohol involvement Moreover the extent to which trends in nighttime fatal

2 Facts Insurance Institute for Highway Safety 1990

~

- tmiddot

-~

~ 84 46 8~ middot~8l t 8~ ~ 89 Y~ar (

J bullbull __ ~r

~

SENATE- No 1900

--shy~--~~~~-lt~~~- gt- ~~ ~_-_-~~-~_~- --=shy

~~lt ~ middotmiddot1middot - - shy gtr~-

l bullbull

$--19 -eO~(81 82 shy ~

~ tmiddot

- ~ ~ ~ - t bullbullbullbullbull ~ - shy-_ ----r~~~~

10

-I -

Single CarNighttim~middotFatfCrashes Datil on nighttime singlecarcrashes also sugges~that the~ebas been

a decrease in drunk driving since 1979 For this irieasure we analyzed the Dumber of single car fatal crashes occurring between 900 pm and 559 am during the 1980s (see Figure 2 and Appendix D)

~( r- ~ ~ ~lIlelry olotar Vlllltle -

~~ f~ Poet -~n ~_nd Ove ~O

-FllilreI ~ - --- y - ~

I It w -gt bull

~ ltII bull - ~ s ~ -

jr~-crash~s do noisect~~~ro~middottr~~dsjn daytime fatalcr~~e~ rit~~ alsobe an bull + -indicator of cllilnging rates of alcohol involvem~nt

---- c bullbull

~middotmiddot~~~crmiddotmiddot r

-~~i~tn~~~~rmiddot middot~V) 2t- if bull Nightt~~-f~tal ~r~~es reached an all-time highin(f979 w~th a

t9~~lQF6~9fatal crashes but the numQerQ centr~slies declined dupng ~Ii~~~x-t 4e~~ulet reachin~a ten year1owof)S6 crashes in 19~9~ a 43perqentdrop _ ~r

bull Wille nithttime (fita crashes were declining betwe~ll 1979and -1989t theDumberofdaytimefatal crashes rose 14 percent shy

c

11

bull

bull SINGLECAR NlGHTTlMSiFATAl CRASHES ( 900 pm ~659 middotmiddotmf shy ~gt 1917--1989middotlt

r - ~ r ~ -

-

I

~ - ~ 1101__ ~~~~ _-~~-Lo-~L--~----_I--~~_ ~ lt ~ 78 71 oeo 81shy

~) r-~ pound~~~~~jtS~~~Lt~2middotmiddot ~ gt -~1oJ ~It ~ 0- 12180

~~~~~ [lt20 gt ~ $ipgl~ c81 DJgh~tiple fat craShes froni 336 crashesin 1979~

io~iin1989aj4Z percent decrease bull ~~t lt~ ~~ ~~r ~

shy -- ~FtaI~CJa$hRata~ -- middottmiddotmiddot

~e -i~~ Ji~ ~trol f~r middot~~~gesJn the numbe~ otmiddotdriye~$on the to~ we f caloulatecfthe faUimiddotciash-nue fOt everYIO~OOOlice~ cldVeIs both

(otMttinefattiicrashes and for siDgIe~ nighttim~ fatar~aslies -To~~~hether t~tCbasbein areducjonmfatamplldeseveJi-among--die y(iungest dri~en we- collect~ more ~ltCifiC d~ai forone~ofthe ~urtpga~sect JJ1~8s~~S ~(drunk dyenng -D~ttim6~fi~-c~ -Cr~hes middot-ACCtltJi~g totoe age of the automobU~opera~01linyqlved We e~aminect two agecohorts of drivers driyeri whowere twenty yearsof ageai)d driversmiddotWho were nineteen years-_ofagt and under and thenre~Wed the frequency off~tal cnlshe~~Qry~u~dri~~in 1979 198j~ 19~5gt and 1989 To account Jor poptdatlon c~ges we converted the delta to a rate fOf every 10000 licensed driVers (see Table f)

-

~ i

f J

-

f shy

r- - ~~

-

middott

i-

- - _ _ shy ICe]FDiding -- - shy bull - -shy-

tmiddot ~ r ~ ----- bull

bull ~~h~ ilu~~(of njsbttime fatal c~ashes per te~ tho~and licensed driVers dropped S~_percent from 179 crashes in 1979 to 084 crashes pe~ 10tOQO licensed drivers in 1989~

bull oF

I

4 See

S

bull

ltU~gt

hmiddot~in~tIiemiddotdeC~e

middotmiddotbullmiddotmiddot

~

=~= ~

1990) SENATE - No 1900 13

bull Thef~ticmby~~fnighttimefatal crash~ a~~ng~teenage drivers dropp~d sh~iy(approximaiely 51pecent)middotbetween 1979 and

1983 - -~ ~ ~ ~ - ~ bullbull FrotPmiddotJ979 t~l1~~~tth~middot Dlght~iD~ fa~aI~t~~ ~ait~d~eased 47

pet~ltf()rtag~~middotmiddotand~5~rceQtfoiJw~tyyear oJ4 drivers bullbull - bull middotmiddotmiddot- bulltAmiddot ~-f- t _ bull bullbullbullbull ~- r f bull - bull bull bull

Iii 1919esjliJecarmiddotnightt4D~Jatalciash-rateforevery 10000 ij~~~f4ri~~~~~~middot O9S~by~he en~Q~ ~~~~ t~emiddotiate had fallen JomiddotO4~~per -l6~Jl~~d dJjvers a52 ~rcentdrop ~

j-Ji-~~(gt r middotmiddotmiddotWbt~ebullbullbullStiQ -~

~ r~ (middotmiddotI-_$~~ -~ ~Jr--lt- bull ~~ lt--~ bull

middotThe~lw~s1rrogt~middotineaSuresmiddot of middotdrunkdriVingmiddot bQtb suUest that fthere~~~Jiie~ middotmiddot~libStantial deCr~~~in aicori()lreia~a fatal crashes middottsin~~1~1jr~foiiui~teJY~ ~lt~rge P~ ofjt~~~d~iine~ocCJJt~ ~arly

~Qo Cf the deqMtS e~flyg8ins did not erode over Cii()he i~niaigderJof t~~ ~l~e~eveniJ1ougli~lj~r~ was sigiilil~~( growth

middotmiddotmiddotmiddotmiddot~middotildhe~i1eofdl~ dfiyening populati9nan~ middot~middotmiddotsl~lcentampD in~~e~ in the YIli~b~~1~e)nil~~rlye~~ In f~Ctpre~aiymiddotfig~s suggest that r~o~par~d~to-l98~mgbtti8)e fatal crashes~~ontinue(H~ Qeclirieduring tli~fuSt~itmiddotmpntl)~fJ~ ~ middottmiddotc lts~middotmiddot

Putjai~elti ~~C~ ~at~on~ (~ta indc~lei~~t M~sachusetts had areI~iv~~etyrecotd~tJi~~ was ~ongthebestiriJhecountry A~ong

_ ~~~~ JJor1bull s -1_ bull bull

~e highlyj)(jpul~~d)lidustrial states onlyNew middotJe~ey hadmiddot a lower ni8bttjmeJai~ciaSh t~te than ~~sachusettsmiddot 1 ( ~

middotRegaidles~ oftlieIeiuction in QighttiDicentfitalcrashea among young drivers since 1979~ rialion81 dat~ iridicatethat thedrivers whomiddot are

_ ~ - ~ prohibited~ by l~ (9in purchasin~ or beiJlgpublic~yserved alcohol are still fo~r time~ JtiQr~ likely to be involyed ijla nigltttim~fatal cr~h than the rest of the driving publics WithinMaSsachu~tts in 1979

these operatQrs made-up 10 percent of the dnVirigpopulationmiddot yet accounted or34 percept of nighttimefatal crashes today they make up only 9percent of all drivers yet they produce 30 percent of all nighttime fatal crashes

The states driving population grew by 614138 persons from 1980 through 1989 and over 90 percent of that growth occurred in the

Acxordiog to figures from the Department of die Registry of Motor Vehicles the number of miles driven in MassachUletIs rose from 3S2 billion miles in 1979 to 442 billion in 1989

DrunJc Drillinl Enfoc~mmt in MtlSsachuutu HtIS the Effort Staed Massachusetts Sen Ie Commitl~ on Post Audit and Oversight November 1988 See panicularly discussion on pllges 6 to IC

IRS Facts 989 Insurance Institute for HighVi~y Slfe1y

gt~middot14 [December

80 81 82 83 84 85 Fiscal Year

MA Dp~tllnt of Rftnu 7180 Snet Po- Audit andOftloll 12180

Flaur 3

- -1990] -SENATE -- No 1900 15

-~- ~

SECTION TWO LEGAL AND AD~TRATIVE CHANGESAFFECIING DRUNK OiuVlNG

-~ -DtnuNC THE 1980s- shybull bullbull bullbull _ - I - bullbull)~ ---~ ~ ~~

lbis ~oJtre~i ~vera1 of~~e mainlegaI ilJ1d administrative _stc- ~~~~Jr(~~cri~IC-~~l~~toco~ttQi~~titk yenvi~~ It reviews -shy

~CJ lA~~dnnJtWamp_agetmiddot the developmen ()f re1)abilitation proshy-it~IQ$~aarchang~jff~~g~n~ties andothermiddotCAuiliermeasures

-~ ~~~~~~~~~ flfgt~ gt ~ gt ~~ bull ~ ~-_ J ~~~~Af~~~beight~~~middotpUi)liccon~rn abQutdnWiig and drlVmg wIraquo~h~Vi~~~ppar~n(iD ibe l~te 1970s andcentar)y 19805 iUpro~pted -shy

ii bf~~~middot~pUbli~p~rceivcent to ~ a draU9~~~ incieasevinmiddot al~oholshylt rela~e4 -rl~ ~r~besamongt~ageIn 1972tt~ st~te ~id penDitted

middot[-f~igttlicdjrSt~(fme thetale of-aicohol~~ pCojl~elgbteen Y~arS of age ~~ otmiddot91aef6 Fbe~gtpublic saw ihis change as a stimUluStoatco~ol-retated ~cr~e~lt~~- ~~ lt _

lt middotWlt~t waamp_l~ceiy~tQ be an i~rease m~he incidence ofdrunk - dri~g~paitisUhirlyamongyoung people iii the 18tC(19708 lCd~~ the

_ltf esbtisnment ~of action groups such as Motherst AgaiQst Drunk ~gt- Diwiligt~ADD) and StUdents Xgainst D~ IgtriVingiS4DD)

middotfTIitse aeti~i$f8roupsmiddot~eie- able to gaiD -media~~ntiop iii a ~aDner ~middot~ltmiddot~Jhatdwane4the public middotattentionmiddotto earner efforts to curb drunk

lt driVing gt - - -

~ 8Ymiddot1979~middotd~nightti~emiddotmiddot(atalcrash rate of dnyer~tw~tyyears old anctunderwas~almo$fflve times the rate of that 9fall6ther drivers This trencl~h~roUghlYmiddotmiddot alarmed the public 8ri~ a newly elected

governor had made campaign promise to changetheage at which a person could purchase alcoholic beverages In 1979the drinking age was raised to twenty years old This was the fiiSt ofseveral legisshylative initiativesdesigned to reduce drinking and driving in Massashychusetts The drinking age was once again raised to age twenty-one in 19848

6 Acta of 1972 Chapter ISS Section 2

~ Acts of 1979 Chapter IS Section 6

bull 8 Acts of 1984 Chapter 312fmiddotmiddotmiddotmiddot

16 -(SENATE - No 1m [December

shy 7- - ~

Tb~ Impact of Legal ~bang~ ~gt-~) Throughoutthe i980s the state made s~veralmore legislative

changes t(fre4uc~ th~ incidence otdrunk driving With each of the legislative changes there wasa noticeable decrease iJidmnk driving activity In i982 the state increased penaities for drunk driving including makiilgjall sentences mandatory for a arletyof-offenders10

When the impact of this act appeared to bedeclininJ by 1985 and 1986 the state passed The Safe Roads Act in the later part of 1986

bull For an excellent discussion of past efforts to deal with this problem see Deterring The Drinking Driver H Ross revised and updated edition DC Heath and Company 1984

Acts of 1982 Chapter 373

I bull

middotmiddotmiddotmiddotf i f

p

II

2

~d~e~~~~if~er

beh~viq~~middotl

~fjmiddot~tftJlt

~r i-est~a~Cmiddotmiddot

-

~~ tmiddot ~ gt _

~

gt

arresihi

-~~0--middot~middot

bull ~statisti~y~o

_-0 ~ lt - _ bull ~

~NATE - No 1900 17 - -

~ Thejn~~nto(TheSAre ROad~A~t was to make adjuditati~nfor drunk an~tmiddotmiddotmak(Pe~aIties more middot~~middot~bl f~t as recentmiddot

anaJYl~~~tof~d~8teth~middot~sutanc~tHatjudamp~entwQ~ld~_swift anti~e~ri is th(~O~L~n~~iye Yay t9 b~ve C JJipact ~n p~blic

~~~ ~lt -Yo ~ ~ gt lt~ loJ~~l~~y1 ~~Os~publiccoricepi a~o~tdmiddot(lnkijriyeningalS() affected

themiddotat~fdes~~(ineP911middotmiddot~4 tli~ltc~uits~~t~i)Yete~atlve ~~4~~k~~~tiyen~~ )~i(jii~r ~oi~pletpeni ne~rsfrae~~sUcl1 ~ tbe use

~gmiddotmiddotmiddotoa~ltmiddotbl~Cksmiddot and t~e 4~fjsi()n ~y tlie-Al~o1ionc B~~~tg~~~h~~lComm~iop 0 cuit~ ~~a~ho~~_ inD~ arid re$iauTl1ifS1i~~Qr~bvet middot~coJJrtmiddotmiddotdeciSio~s i~g~ng the liability of i)i~If~(di~ts)or~~iVing dnDJier-s Wh~) w~resugtseqiently jnvolJdin ~ authmof)J1~~t8$lje~ middotht4t ~ siPmcant imp~t on the willingnessmiddotor cortimercW est~blis1iIDentS~ middottomiddot serve aicohol1c ~veragesmiddotmiddot without

~ r~middotmiddotltmiddot ~ t

~-~~~ ~ ~ ~ ~ middotfmiddot

middotbthermiddot~9wlteftn~UreS ApiDStmiddotD~priverS _-~_ ~~ ) p $ ~ p -

Inere~gpubli~concemmiddotapout drunkdriving alsolcentd to a~tronger

fOcuS-bnihe c(ninterii1eaSutes~aicen to limit druDk~diivihg during the - _ HI _ ~~ 1 - bull

1980sinese-ine~i~ tyigti~ally fall into ~hreemyenn categ~ries gt ~~uilkdtiveis olt~~g eVidencemiddot thil~middotth~s-e d~Veis ~

~tuanydrunk ~~rpe~aliiingdrun~ drivers ~ i_ ~)r0 ~

Dr~tirivJDI ~ri~s ~

jUs~ ~~the s~atjsilcsmiddotdein~nstrate a dr~p in drrinkdriyh-tg~actiyity iiid)catethafdrunk drivingarrests fell off dildng the

past d~caa~A~~rdjJigmiddot ~t~~ t~e middotNatioJial HighwayTtaffic-$8fety Admipl~iiati~iJ~middotmiddot~e natiQq~t peak in drunk ~ijyqig eJifdrcement

activityoccurre4 in 19~~when aInt0st 2 iliiJli~ii Pt~ple - approxjmiddotmately ti2 percent~o the nations li~enSeddrivers ~ were

middotarreste4IoJmiddotdrtintltdriving Nevertheless t~e Natio~~rligh~ymiddotSafety Admilfs~ration~stimateS hat even during the p~k years of enforcement police nati6DaIiyapprehendedmiddot only 1out 0(500 people who wercdriving under theinfluence of alcohol atamiddotgiven time

According to infonnatiol1 frtgtm the Office of the Commissioner of Probation enforcement in Massachusetts peaked a little later than

Nichols JL and Ross HL Th~ Eff~elivtM$$ 0 Saneiomor DWI Oftndns paper presented at the International Conference on Alcohol Drugs and Traffic Safety October 1989 Chica80 Illinois

204 CMR 403 adopted December 10 1984

-~

c

--

~

lt

gt ~

- gt

01

19 bull 1 I

39~9i2 - UOS~ 31~1700 40251100

79l

180

SENATE shy No 1900

I ~

~ IS74 - 2S87 I

291C)ooQ - i 36414oo

~

DUlIAreSh ric~sed Driv~n

1990]

Amiddotti~t Rate per ~ ~ l~~DriYers J 1~B7 shy 710 ~

r - 1 ~- ~+ - - - ri

- SO~e ~n~tC P~st- _AUdit and~v~iBht

r-~-middotgt7~ bull ~ ~ ~ 1~ ~ ~

i~gsc~ gt middotOL gt bull bull _ Themes~iratcdncrea$ed263 percent from 1970 to 1984 from

~ shy ~- iai~~lO bull~ariestsptriOOoIicen$eddrivers~~-_ ~ _~ ~~lmiddot ~ ~ gtshy bullbull - __

_ ~ - Be~weiit198()-and 1984 -~he drunk driving arrest raie rose 47 ~ bull ~tf1~t 4 _ bull bull bull - 1

pei~nt ~9ntiiluingt~e~PQsitivetrerid established-d~g the two S p~e~~pifii~yearpeii~ds - shy gt - -~ S~t~84~~arre$ti~t~ h~ d~cIined 24 percent

Tfi~~ii~tff~t~~t-i~OOo licensed 4rivers ini989 (791) is only gt 1pound~nffil8her tbijiit~e i98() rate~_ -T

_ ~middot~--I ~ - 1 _ ~ bull bull bull ~ thF~ ~~~com~tmg explanatio~ for the 24PerCent~c=Crease in drnlt~t~g~Cyentivitysince 1984The t-rstexp~tion

favoi~qbYanu~ber-ofpoJice admiJiistrators is that P8st~nforcement and acfjap2eindQver bChavi()r ~ responsible for the CI~rCaSing rate of aq~$(~~ According to th~ theQry there are f~w~~altestsbecause past enforcement efforts-have successfully deterred d~ driving so

that there are fewer drunk drivers on the roads to apprehend There have not been any local studies to test this explanation~ but few safety experts have been willing to accept this type of anecdotal data on face value

19

1shy

1

1 I

~_ bullbull

~

j -

SENATE ~ No~ 1900 December

Acts of 1961 Chapter 340

14 MGl Chapter 90 Section 24f

1990) 1 lt SENATE ~ Nol900 _

-~~ ~

~i -

PenUllog Drunk Drivers

The Massachusetts system for penalizingdunk drivers includes middotlicense suspensions or revocations fines education and treatment and incarceration The penalties are graduated into three main steps such that theybecome increasingly intensive and they are determined

IS Digesl of Slale Alcohol Highway SafelY Relaled Regulalion eighth edition National Highway Traffic Safety Association

11

- ~

gt SENATE shy No 1900

-

~

[December

~

gt

See Acts of 1982 Chapter 373

c

13

i

- f -- ~ _ gt bull $ -

~i~-~~(~~ ~ ~ ~~ middot(Jey FW4iDgS~ ~ -

- ~_~ _~ ~~ ~ g- ~~ 1__ I bull J

bull ASS1~~~nts-to middotir8t offender programs hv~middot d~crea$ed 20 perceilrsincefis~aLyear 1985i mirroringJh~~~hllng auest tate

bull A~sigriments to the second ~ffenders piogr~~h~lV~deereaSed bull lo _ (

but te-middotdeclirie~has not been as sharp-as fQrthe first offender

(- ~ J)rosr~~ -~ imiddot cmiddotbullbull ~~-- r middotltThe Departme~t of Public 9f Health r~portsltthat while the

frequenCy o~adtni$~i()ns to th~ 14-day trtmen~J)r()gram has middotdecreasedover the last~five years~the demographic cJtaracteristics of fitstand $~cond offender drunk dovers have rem~ined fairly cOnstant includingtheir aver~ge age (approximately 31 ye~s)middot Furthermore inmiddot 1989 when there-were 33709 arrests 2550 drtink drivers (76 percentwent to jail in 1984 when 39912 drunk drivers were arrested 2006 of them were sent to jail (50 percent)

bull bullbull bull

17

~

~ middotc~)middotmiddot ~

~

- gt ~ -ilt c

-

bull gt

accur~~y

SENATE No~ -1900

[December - -1

sECnorit~REE I~~VESIN ~IMPLtEi)CONSENT J - po ~ _ --- ro bull

Int~ s~ctio~iof- themiddotr~o~ve 10~ka M~sa~hu~itS~ experience withf~tiilg for~lPt~xication~ nctthe implied conselli law Wcentthen e~amirttlieinw~~f~e~~~p~6(J~~ li~ on~~ain~s aDdmiddot~nmiddot

Ul~eqr~~ineDt ~syst~in ~a~~()Y~~1detltifY thieemiddotprD~~erils with - ~hcentJa~~s~tnp~~~atiQ~th~q~ngmiddoti~reflS~middotrat~1ui1ohgdet8iJl~s

middotmiddot(middot~~middotfP~~~q~I~~ac~~e~~~t~cen~e~sus~~i~~(~h~~~ ~hp ~emiddotil1e- test and faiJ~middot~iidfinaJI~tl1flack9fjdequat~iecoidsmiddotQllwhether the test was iidfu1nister~accepted middotormiddotfCieetectmiddot gt

~~~~jgtt~middotc~-ltmiddot TJ~(~ic~aeY9f1Ji~Tests ~

~7 bullbullbulll-~ - _ bull bull _ - _

Th~i~ middotis-inc~~~g evidencif that th~ tcentst pr~ltUresin place in yen$~U~~t~~u~e_lair pJa-yXor ttSt)~bjects~ft~ tb~tmiddotth~ infrared

iDaelJll~~ reqqired by the~w are accuratecanci teliable In what is ~~~~pg~I~~~~k c~e-in~~e fi~Ilt4Sat~ 6fJV~~Je~se~ v Andrew l)omiddot~m~ et ~l~Jle Supreme Co~ of ~~wJeJSeyhel4~tpat ~ch tes~~

~~c~~~~~~~~in~ ~gt ~ ~~~~ gt ~ ~ We-areconfiaenn~tcontInti~useoftheb~atfW~rwjllnot lead to unjustmiddot~~~vleti9~-The ~le~~ ~deii~ IS m9tet9ii~1~ive now t~tve(iliat ~e cbilQCe$of-ove~ti~m~tjonmiddot are ~Jaotdnarily ~

sm~l1middotmiddot middot ~fTbe b~ath~~er ismiddotmiddot)i~asSedin -i~ cQinbined pr~~ticalitymiddotmiddotampil4 use~~ssh em OJ he low side 111 a sl8nficant nu~ber ofcases in-order not to overestimate bloodmiddotatcoholin the

middotmiddotgreaies~j)ossibenumoer OfC8Ses~ Wi~e~ ~Vinlted this ~jusifiable middotmiddotiifltgtr4~r to furthermiddot the legislatures wilt ~rid middotmaiDtmefficiency in cmiddot

oiu~ystemQtJustiCeP ~ _ lt1middot~~middotmiddotmiddotmiddot ~t~ ~ ~ -~~ - -- ~

TheVqwnie tilSe is especially valu~bl~ ~ec~use ~lt)stl9f tJte leading expert~lp the ftefd~pPearcentd and teslifiea5othaftheNew Jersey court had tliebeilefjLofan extraordinarily comigtlet~ ~cord uponwhich to base ~its decision The Downie case reduCes concerns about the

and ~reliability of the breath~test middotJlJachines ~urTentIy permitted by MaSsachusetts law ~- ~

The ieliabiii~y of current technology is beco~ngless of an issue Deliberations jQ Massachusetts can ther~fore f~cus on whether the state wants accurate evidence of alcohol impairment and to what extent it wants such evidence not how the test is administered or whether it is accurate

Stall of Nlw Jersey v Andrew Downie e al 569 A2d 242 (NJ 1990) page 251

25

r J I

bull ~J~i~t Ri ~ gt i~mrmiddot1 ~ middoti~~~~ lt~~~~~$ ~~ ~~~a~~mber) (lIe~fet) middotSiilpeDsl~as ~UI~~its~Cn$ 1

- middot~I986~ middot38iO~9middot - 9449 middot2S NA J I middotmiddott~~l~ t~a8J66o c ~~ 13510 36 2608C)middotd

middotmiddotI~~~J~ i~~~~l~ 3~C ~~ml

1middotgt~~atePcrst A~(iifil~CI oVCrsi8h middott cStima te ~ ~ -I

sect~lIlc MA~J5~centlsirY ~pdotor ~Chi~ICS _ ~l I ~~ gt1 i

~ 1

Ij~~~~~~ qgt ~~~ceJ986~middott~ep~rC~iltage of pe~onsr~fus1Dg~o J~e a breath

orJ)loOd~tes( aft~r arrest for drunk dtiving hasJncreased 44 - p~~~n~lrising f~Qll2S percent to 36 ~rc~rttlt

middot ltOut of33imiddot7~ p~~pl~ -yenr~ted -fo~ dru~dri~i~gj~Massachushy 0 middotsettsciuiiJig-198~12279people refused to take abfeath or blood test -and~()nly U~639 actually took a breath ormiddot bl~od test arter ~ JliTestmiddotmiddot -

bull Registry ~tMotor Vehicles and Office of Alcohol Testing reports do not indicate and cannot account for whether or not 9791 of the states 23918 dnitlk driving offendersin- 1989 were offered a breath or blood testand whether they took or refusedihat test

26 SENATE - No 1900 [December

Ie Of the 11639 offenders who consentedmiddott~ a ~~eath or biood test in 1989o~y6998 haeJ theirJicensessus~middotnded under the provi- sionS of~he-~aamimstraiivePerse role

There ~r~-three~~se~o~ pr~bienis jItlieM~~~b~~etts implied consent ~trategy Firsimany offellders are tefusittjto take a test

~ 1~~~~~~~1~~~~ ~t~~ t~1~~4la~e~~e~ fir~t offe~ders ar~~~soretusing~o t~eth~eSF D~ng thepcriodlt

froQll9ampampto-1982)ii~)1mrber of people refuSing teiake the test has rise~ 44 p~r~ent froJl2S percent of those aITested1t) -36 percent of

those arrested gt ~ - bullbull

~ The iniat~forinfor first a~d ~~c~rilaquo(offe~(etproampraritsoffermiddot middot8ddtiQna~vid~Jice- diat the proportion or-clients refUsing middotto take a

~br~at~ tcentsectt~~ter middotmiddot~IT~~tmiddot ~as risen sharply Alice~ t981 andsecond p~ngers il~e)nu~h~orelikeryo refus~ to take~he middottestmiddot During

calepdar ~~rmiddot1989~ percent ~f the second- offendcrs ad~tted to the i4-ltiyiJogran1reported thalt~ey hadiefus~to take abreath

~ bull 0 bull _ bull bull

test c()mp~ to a 33 percent nite for flr$t~offen4eIS ~ The CoDinu)nwealtIj therefore~ must prosecute 8Imost two-thirds

of its drunk drivers without scientific eViden~ - cd imp8irment Mo~eover~J~e pr~s~~i~penalty structure is~i~~ffecii~e~I~ca~mgthe

vast majorityof dninkdrivers to ~onsend~the ~r~th t~~t Second roughly oile-tbird ofthosewhp~taketb-e bteatbmiddot test and

arefoundtohave alllgh blood aicohol conce~tratioiaren~(getting their licenses suspended Of the 33709 peopie ~~lor drunk driving in MaJossachusetts duIjng 1989 onlyOne-third were documentedHo havetaken a blood alcoh()tteStaftetartestOf those who were dricume~ied to have taken the test (rQtU the Commonshywealths testing experience we could estimate tha~IO800 of these individuals would have had a blood level conCentration of at least 010)8 However datfl from the Registry of Mot~~ Vehicles show that only 6998 persons were suspended under the middotmiddotadininistrative per se provisions All 10800 of those who would have tested above 010 percent however would have been subject to an immediate license

Accordinl to data from the Office of Alcohol Testing only 63 percent of those persons tested durin fiscal year 1989 and 62 percent of those per50m tested during fISCal year 1990 recorded test results of

BACs below 010 percent Given these results it is likely that of the 11639 tests administered in 19Z9 10800 would have BACs higher than 010 percent

SENATE - No 1900 27

suspension 81 aiJai~~e~~there is no ~1earieasonfor the states failuftnO suspen(J the licenSes of Offenders Th~third pio~~em W(~hthe statesimplementatlonoftbe implied

~ consent law is~lli~p~o~ie~tr~cor4 ~eep~ng p1cent riu~ber of people who refuse thehteath~iYi~fan(fthosewho takethe test~c~ouni for only10S perCcent~t9(tat~~~~irestslt ~~very ~isl~rbi~g t~~t_ the state ~l~0~acc9ui1~fqr~t~qpL~Opercent ~I itscaSeSltt~~ ~ gt~_

Sorn~Qf-tht(~uiirepq~~d casestn~y~ hav~ bcent~J)middot~p cit~~mstaJices wheii~~~poli~~iriad(~aij~~ts gtwithOut offerbigtbe tesi niis oCcurs

-J ~ r middot~middotmiddot-i~ middotr~ - __ r - - - -

wh~~ ~secteCp~~~ofic~r ~~np( ~v~ljPJ~ t~_ ~it_n~~~~h~ ~esliHr wheremiddot thercent it~no qualifiedbreadttest oper~tor prese1itcFhi~oC(ursmore

middot~~ f ~ ~ bull - bull ~ bullbull J - - bullbull ~ _ j J bull bull _ bull bullbullbullbull shy

fr~qu~ritlYin_~PIaJ~r~pat1ments Tlielaw r~quir~llfa(iirtJl~)vent

thatt~~lis~~J~fu~~~gta-~cp~~ical test- wh~n~qqe~ted tli~ officer L~c Jiii~gfli~treq~~sfsli~lf~piJllediately prepar~ a~ptfenlepqFrof s1ch ~ ~ ~ jrrefusaIarid~ thtfthis r~phifmust bet end()rseltt6y~tliirdpeison ~who -~~-~~bad i~iiesseltl jJ1~refu~Waowever~hetej~nsect Way Q~o~what _-

r ~ tOpartQfJhe 30middotpe~ntojdie unreported casesis1111Ci tQ t~i~Teason~2o lt gtj q ~ltmiddotgtgtigt lt ~-

~ ~i~ SECT10N FO_~ s~~~~~y ANDRECO~~~~J~r~~N~ Cle~rly the G6Q1ni~n~ealths comQ1itDen( ~~diu~~ driving ~iet1tnce hasti~n i~~oya~~~e s~bst~tial~a~~ sfifssf~~Glt~n~es

10 law~ and recentc()urt de~ls10ns aff~tm~ ltabiAty~for d(Unk dnv10g -accid~iltShave h~(f asigl~ant influence on red~~iiig~r11nk4riving as diq iip~reAAe~rl~welif()rcenient The Com~dilw~a~li~s~~uccess is

also ~itti~utahdo strongpuhlic awareness andconce51L~(ltliedeshydine indrinkll)g~~and thechanging demographicsOf (lie dpving popuI~tion middotfmiddot

Alsltgt in spiie6f noticeable decreases in sevetal~n1nk driving countermeasuresduring tlle latter years of the decade state efforts to deter and identify drunk driving during the years 1980~to 1989 far surpassed the efforts made in the preceding decade (see Table V)

9 MGL Chapter 90 Section 24(1)

20 The Commonwealth must address the problem of circumstances arising when there is no witness to a test Just as local fire departments frequently rely on mutual assistance from other communities police departments must make arrangements for mutunl aid cr for centrJlizeltesting of drunk drivers especially in the more rural areas of the state

7

middot t

1990] y SENATE - No 1900 -

be ~ea of ~ -

For a full listing of the reports on drunk driving by the SemIte Committee on Post Audit and Oversigh~

see Appendilt A I

SENATE - No 1900 bull [December8

~ SECTIONONE MEAStRlNG ~LCOHOL-REtATED FATAL CRASHES

This seciion qef~~s drunk driving a~~ the~ tt~es the changing rate of a1cQhol-r~latedfatal cras~ in Massachusetts ov-cr the past ~decade -It ses ~tW9 $tirrogaie ~e~uies~of d~ drivmg ~gh~time d~atal ~qtQ4toQil~ ~rashes and asubStCltr ihi$ gfOUP~ single car n~ghttiihefata1Ci~hes -

p~~~~+( y 1 for thep~rpqses Qfth~ ~poJ1 dru~J(dtiYi~g~me~sthat a person

ismiddotopeialmg ~~jii~tor- yehicle witli a~blQ~)~L al~ohQf middotcltgtncent~a- tqI1 (Q~~ otO~()~percent or $Ofe Thjs~tlie le~lat whicha~son cap-~~)~ aTged~~n thec~iine of ~rlvitig~nder ~~bemiddotiPfluenCeQf ltquqrlt DU~L)i M~acluis~tts ~Bti9~~Y~ thelenlJodhis offense is ~djL~irigwhile middotiltoxi~ted~(DWI) ~ ~bull~ bull lt

)f~~1~iSQnop~raie~ a ~t~~~~l~l(wiha~~ of OlQperce~t or mo e~ Massac usetts -law raISes a pr~$QIDptJonmiddottbat thep~son IS

ctrunk7 tn~factmiddot~piaemlologicaI st-lid~e~Jiave sh~wn thilt~lie risk of an autofuobile~)ashmiddotbegirismiddot to ~~ signijicantiy wit4~ blooo alcohol

conceJitraiion oL90Spercent so the sta~ftoiy thresholds are qu~te t ~~ ~ - lt shy reasona~I1e- ~~_ bull A 150PQund~rs~n would have to lirtiitJiisoih~~-drinkjhgtono

more tii-an one lJrll1k p~ihour to aV6idilmiddotbJ(ntdwcohollevei of005 peic~~~~ r~a~~ia~IQod a~cohorley~l ~~Q~ (ORer~ilt li1s ~~me i~o pound nCfS9n w01ldmiddothave to cons~me$eyendrmks ~~eN~fourhour ~~i~d~l~4rinyen~~sequ8I to oemiddotQ~ce of tltO~ pro~fWh~~k~y~ ~ three ouncegl~of yt1tleior a~welve ounce cont~l~r ot~t The average BACotthQse atre~ted for drunk driving iIi MaSsachusetts during 1989 was 017- percen_t~ - ~ gt

shy

Measui~of I)ru~~Drlving ~ -

The best measure of whether or not a driver has consumed alcohol prior to an automobiie crash isto measure tlie drivers level of blood alcohol concentration at the time of the crash Unfortunately BAC evidence is available in only half of fatal crashes in Massachusetts at this time and several years back the information was even less complete

9 19M SENATE - No 1900

WitbQUtreliblcentBA~data~~echose to uSe tw6 surrogate measures to approximate ~he nl1Qi~ of fatal au~omobiIe craShes in which alcohol was illyolved~ nighttime fat81 ~ut6mobile ciasheSand a subset

of thiS Jne8sut~~rljghttitesectrngle Car f~iatcrasti~~ (cr~hes1~tolving ~only ~~ v~hicie~ No(e~i) ~~tal ~ig~i~ime ~utQiilobiie ~rash or

bull ni8htn~ ~~~gl~~~ cr~JjJi()w~vei i-middotca~~~Y ~rdrver ~~o has 0middot~ c~I1amp~~a~~~li91PQor rYisibilify)lIiCllowettiMfi~ vohimeare also

bullbull middotltrmiddotmiddotlt imJ)orlahtcliaec(efutic~~ nighttime (lrlVlng~lt7lt ( gt -c ~~ N~~~ii~a~~~~~iem~~~~a1middottr~ficmiddots~~~ymiddot e~Re1t~~~~t~~~~~ these middotsp1emiddottmiddotW9~eyenyre~ -th~t we use t9 st~dy d~4nV1~gp~ttemsIn faci~~6ut exa~tionmiddot ~fh~ ~cordsIrommiddotthemiddot ~~~~use~tsJ~egistry ~ ~ ltQf Mo~~~y ~~~~o~ ~t~~l~r~l xea~ ~~nrrrin~~ (1l~ d~yers -i~ car - crash~J)c~u~g~~Veen~he ~o~ 9f-6()OP1D1 ap4middot5S9 am are~

2- c ve~iileJyjtci~ti~~~-p~sitivel~~~JSofampl((Od aIC9~breoricentration Theidatfi)lisf1~p beiw~nfa~al~r8shesmvoivjhgdrilnk -(lovers and the tiq1centqfmiddot a8pound~ re~~ci~d in~ation~ ~ta 9f 19a9(~ ApPendix

if Bgt~ Accor4inSI(~~~se nationaldata inore ~lialhaIfof fjtamp11Ylnj~ied bull middotdrivelillfcraSJi~s~middoto~~mngmiddotbetw~en 9~~~Diand S~ ~Ip~ ejcUbit

_ BAC~lJ~)~rmiddota~r~~~~o~~riie~tB~tweeiimiddotmi~~~t~~~~~~~~~ the~ number nses tomiddot 70cperte~t Moteover the datamiddotshow-thatm smgle

car crasneS occUQlng behvee~ 900 pm and 559-am 70middotpercent of Jat~iyi~jiired~~versexhi~HaAltsat~rab~vfO10~rceJi~2

-_gt_-~ lt~lt~~~ _~-) + )~f~ gt - ~lt _- -- ~_ --~L--

Nighttime Fatal A~tombbUemiddotCrashesmiddot bull Igtatmiddoto~~ightfiriie f~ta1-aut~~obile~rashess~ggelttlia there has

been amiddotaecreaSe~indrUilic(Jtiving inmiddot Massachusei~ssi~~e~1979 For thismeasure~ w~ an8Iyzed th~ frequency of nighiti~e(ffom600 pm

- to 559 am) ra~M a~toriiobne crashes during the 1980s-We also compared the~Umber ofnighttime fat~ crashes wiihthenum~r of

dayti~~ra(a1 cr~h~s(se~~fi~re I and AppendixC) Comp~ng nighttime ~rashes withdaytime crashes coptrols for

overall changes in driving behavior changing road or weather conditions from year to year and ~hanging characteristics of the driving population The extent to which nighttime fatal automobile crashes exceed daytime crashes may be an indicator of alcohol involvement Moreover the extent to which trends in nighttime fatal

2 Facts Insurance Institute for Highway Safety 1990

~

- tmiddot

-~

~ 84 46 8~ middot~8l t 8~ ~ 89 Y~ar (

J bullbull __ ~r

~

SENATE- No 1900

--shy~--~~~~-lt~~~- gt- ~~ ~_-_-~~-~_~- --=shy

~~lt ~ middotmiddot1middot - - shy gtr~-

l bullbull

$--19 -eO~(81 82 shy ~

~ tmiddot

- ~ ~ ~ - t bullbullbullbullbull ~ - shy-_ ----r~~~~

10

-I -

Single CarNighttim~middotFatfCrashes Datil on nighttime singlecarcrashes also sugges~that the~ebas been

a decrease in drunk driving since 1979 For this irieasure we analyzed the Dumber of single car fatal crashes occurring between 900 pm and 559 am during the 1980s (see Figure 2 and Appendix D)

~( r- ~ ~ ~lIlelry olotar Vlllltle -

~~ f~ Poet -~n ~_nd Ove ~O

-FllilreI ~ - --- y - ~

I It w -gt bull

~ ltII bull - ~ s ~ -

jr~-crash~s do noisect~~~ro~middottr~~dsjn daytime fatalcr~~e~ rit~~ alsobe an bull + -indicator of cllilnging rates of alcohol involvem~nt

---- c bullbull

~middotmiddot~~~crmiddotmiddot r

-~~i~tn~~~~rmiddot middot~V) 2t- if bull Nightt~~-f~tal ~r~~es reached an all-time highin(f979 w~th a

t9~~lQF6~9fatal crashes but the numQerQ centr~slies declined dupng ~Ii~~~x-t 4e~~ulet reachin~a ten year1owof)S6 crashes in 19~9~ a 43perqentdrop _ ~r

bull Wille nithttime (fita crashes were declining betwe~ll 1979and -1989t theDumberofdaytimefatal crashes rose 14 percent shy

c

11

bull

bull SINGLECAR NlGHTTlMSiFATAl CRASHES ( 900 pm ~659 middotmiddotmf shy ~gt 1917--1989middotlt

r - ~ r ~ -

-

I

~ - ~ 1101__ ~~~~ _-~~-Lo-~L--~----_I--~~_ ~ lt ~ 78 71 oeo 81shy

~) r-~ pound~~~~~jtS~~~Lt~2middotmiddot ~ gt -~1oJ ~It ~ 0- 12180

~~~~~ [lt20 gt ~ $ipgl~ c81 DJgh~tiple fat craShes froni 336 crashesin 1979~

io~iin1989aj4Z percent decrease bull ~~t lt~ ~~ ~~r ~

shy -- ~FtaI~CJa$hRata~ -- middottmiddotmiddot

~e -i~~ Ji~ ~trol f~r middot~~~gesJn the numbe~ otmiddotdriye~$on the to~ we f caloulatecfthe faUimiddotciash-nue fOt everYIO~OOOlice~ cldVeIs both

(otMttinefattiicrashes and for siDgIe~ nighttim~ fatar~aslies -To~~~hether t~tCbasbein areducjonmfatamplldeseveJi-among--die y(iungest dri~en we- collect~ more ~ltCifiC d~ai forone~ofthe ~urtpga~sect JJ1~8s~~S ~(drunk dyenng -D~ttim6~fi~-c~ -Cr~hes middot-ACCtltJi~g totoe age of the automobU~opera~01linyqlved We e~aminect two agecohorts of drivers driyeri whowere twenty yearsof ageai)d driversmiddotWho were nineteen years-_ofagt and under and thenre~Wed the frequency off~tal cnlshe~~Qry~u~dri~~in 1979 198j~ 19~5gt and 1989 To account Jor poptdatlon c~ges we converted the delta to a rate fOf every 10000 licensed driVers (see Table f)

-

~ i

f J

-

f shy

r- - ~~

-

middott

i-

- - _ _ shy ICe]FDiding -- - shy bull - -shy-

tmiddot ~ r ~ ----- bull

bull ~~h~ ilu~~(of njsbttime fatal c~ashes per te~ tho~and licensed driVers dropped S~_percent from 179 crashes in 1979 to 084 crashes pe~ 10tOQO licensed drivers in 1989~

bull oF

I

4 See

S

bull

ltU~gt

hmiddot~in~tIiemiddotdeC~e

middotmiddotbullmiddotmiddot

~

=~= ~

1990) SENATE - No 1900 13

bull Thef~ticmby~~fnighttimefatal crash~ a~~ng~teenage drivers dropp~d sh~iy(approximaiely 51pecent)middotbetween 1979 and

1983 - -~ ~ ~ ~ - ~ bullbull FrotPmiddotJ979 t~l1~~~tth~middot Dlght~iD~ fa~aI~t~~ ~ait~d~eased 47

pet~ltf()rtag~~middotmiddotand~5~rceQtfoiJw~tyyear oJ4 drivers bullbull - bull middotmiddotmiddot- bulltAmiddot ~-f- t _ bull bullbullbullbull ~- r f bull - bull bull bull

Iii 1919esjliJecarmiddotnightt4D~Jatalciash-rateforevery 10000 ij~~~f4ri~~~~~~middot O9S~by~he en~Q~ ~~~~ t~emiddotiate had fallen JomiddotO4~~per -l6~Jl~~d dJjvers a52 ~rcentdrop ~

j-Ji-~~(gt r middotmiddotmiddotWbt~ebullbullbullStiQ -~

~ r~ (middotmiddotI-_$~~ -~ ~Jr--lt- bull ~~ lt--~ bull

middotThe~lw~s1rrogt~middotineaSuresmiddot of middotdrunkdriVingmiddot bQtb suUest that fthere~~~Jiie~ middotmiddot~libStantial deCr~~~in aicori()lreia~a fatal crashes middottsin~~1~1jr~foiiui~teJY~ ~lt~rge P~ ofjt~~~d~iine~ocCJJt~ ~arly

~Qo Cf the deqMtS e~flyg8ins did not erode over Cii()he i~niaigderJof t~~ ~l~e~eveniJ1ougli~lj~r~ was sigiilil~~( growth

middotmiddotmiddotmiddotmiddot~middotildhe~i1eofdl~ dfiyening populati9nan~ middot~middotmiddotsl~lcentampD in~~e~ in the YIli~b~~1~e)nil~~rlye~~ In f~Ctpre~aiymiddotfig~s suggest that r~o~par~d~to-l98~mgbtti8)e fatal crashes~~ontinue(H~ Qeclirieduring tli~fuSt~itmiddotmpntl)~fJ~ ~ middottmiddotc lts~middotmiddot

Putjai~elti ~~C~ ~at~on~ (~ta indc~lei~~t M~sachusetts had areI~iv~~etyrecotd~tJi~~ was ~ongthebestiriJhecountry A~ong

_ ~~~~ JJor1bull s -1_ bull bull

~e highlyj)(jpul~~d)lidustrial states onlyNew middotJe~ey hadmiddot a lower ni8bttjmeJai~ciaSh t~te than ~~sachusettsmiddot 1 ( ~

middotRegaidles~ oftlieIeiuction in QighttiDicentfitalcrashea among young drivers since 1979~ rialion81 dat~ iridicatethat thedrivers whomiddot are

_ ~ - ~ prohibited~ by l~ (9in purchasin~ or beiJlgpublic~yserved alcohol are still fo~r time~ JtiQr~ likely to be involyed ijla nigltttim~fatal cr~h than the rest of the driving publics WithinMaSsachu~tts in 1979

these operatQrs made-up 10 percent of the dnVirigpopulationmiddot yet accounted or34 percept of nighttimefatal crashes today they make up only 9percent of all drivers yet they produce 30 percent of all nighttime fatal crashes

The states driving population grew by 614138 persons from 1980 through 1989 and over 90 percent of that growth occurred in the

Acxordiog to figures from the Department of die Registry of Motor Vehicles the number of miles driven in MassachUletIs rose from 3S2 billion miles in 1979 to 442 billion in 1989

DrunJc Drillinl Enfoc~mmt in MtlSsachuutu HtIS the Effort Staed Massachusetts Sen Ie Commitl~ on Post Audit and Oversight November 1988 See panicularly discussion on pllges 6 to IC

IRS Facts 989 Insurance Institute for HighVi~y Slfe1y

gt~middot14 [December

80 81 82 83 84 85 Fiscal Year

MA Dp~tllnt of Rftnu 7180 Snet Po- Audit andOftloll 12180

Flaur 3

- -1990] -SENATE -- No 1900 15

-~- ~

SECTION TWO LEGAL AND AD~TRATIVE CHANGESAFFECIING DRUNK OiuVlNG

-~ -DtnuNC THE 1980s- shybull bullbull bullbull _ - I - bullbull)~ ---~ ~ ~~

lbis ~oJtre~i ~vera1 of~~e mainlegaI ilJ1d administrative _stc- ~~~~Jr(~~cri~IC-~~l~~toco~ttQi~~titk yenvi~~ It reviews -shy

~CJ lA~~dnnJtWamp_agetmiddot the developmen ()f re1)abilitation proshy-it~IQ$~aarchang~jff~~g~n~ties andothermiddotCAuiliermeasures

-~ ~~~~~~~~~ flfgt~ gt ~ gt ~~ bull ~ ~-_ J ~~~~Af~~~beight~~~middotpUi)liccon~rn abQutdnWiig and drlVmg wIraquo~h~Vi~~~ppar~n(iD ibe l~te 1970s andcentar)y 19805 iUpro~pted -shy

ii bf~~~middot~pUbli~p~rceivcent to ~ a draU9~~~ incieasevinmiddot al~oholshylt rela~e4 -rl~ ~r~besamongt~ageIn 1972tt~ st~te ~id penDitted

middot[-f~igttlicdjrSt~(fme thetale of-aicohol~~ pCojl~elgbteen Y~arS of age ~~ otmiddot91aef6 Fbe~gtpublic saw ihis change as a stimUluStoatco~ol-retated ~cr~e~lt~~- ~~ lt _

lt middotWlt~t waamp_l~ceiy~tQ be an i~rease m~he incidence ofdrunk - dri~g~paitisUhirlyamongyoung people iii the 18tC(19708 lCd~~ the

_ltf esbtisnment ~of action groups such as Motherst AgaiQst Drunk ~gt- Diwiligt~ADD) and StUdents Xgainst D~ IgtriVingiS4DD)

middotfTIitse aeti~i$f8roupsmiddot~eie- able to gaiD -media~~ntiop iii a ~aDner ~middot~ltmiddot~Jhatdwane4the public middotattentionmiddotto earner efforts to curb drunk

lt driVing gt - - -

~ 8Ymiddot1979~middotd~nightti~emiddotmiddot(atalcrash rate of dnyer~tw~tyyears old anctunderwas~almo$fflve times the rate of that 9fall6ther drivers This trencl~h~roUghlYmiddotmiddot alarmed the public 8ri~ a newly elected

governor had made campaign promise to changetheage at which a person could purchase alcoholic beverages In 1979the drinking age was raised to twenty years old This was the fiiSt ofseveral legisshylative initiativesdesigned to reduce drinking and driving in Massashychusetts The drinking age was once again raised to age twenty-one in 19848

6 Acta of 1972 Chapter ISS Section 2

~ Acts of 1979 Chapter IS Section 6

bull 8 Acts of 1984 Chapter 312fmiddotmiddotmiddotmiddot

16 -(SENATE - No 1m [December

shy 7- - ~

Tb~ Impact of Legal ~bang~ ~gt-~) Throughoutthe i980s the state made s~veralmore legislative

changes t(fre4uc~ th~ incidence otdrunk driving With each of the legislative changes there wasa noticeable decrease iJidmnk driving activity In i982 the state increased penaities for drunk driving including makiilgjall sentences mandatory for a arletyof-offenders10

When the impact of this act appeared to bedeclininJ by 1985 and 1986 the state passed The Safe Roads Act in the later part of 1986

bull For an excellent discussion of past efforts to deal with this problem see Deterring The Drinking Driver H Ross revised and updated edition DC Heath and Company 1984

Acts of 1982 Chapter 373

I bull

middotmiddotmiddotmiddotf i f

p

II

2

~d~e~~~~if~er

beh~viq~~middotl

~fjmiddot~tftJlt

~r i-est~a~Cmiddotmiddot

-

~~ tmiddot ~ gt _

~

gt

arresihi

-~~0--middot~middot

bull ~statisti~y~o

_-0 ~ lt - _ bull ~

~NATE - No 1900 17 - -

~ Thejn~~nto(TheSAre ROad~A~t was to make adjuditati~nfor drunk an~tmiddotmiddotmak(Pe~aIties more middot~~middot~bl f~t as recentmiddot

anaJYl~~~tof~d~8teth~middot~sutanc~tHatjudamp~entwQ~ld~_swift anti~e~ri is th(~O~L~n~~iye Yay t9 b~ve C JJipact ~n p~blic

~~~ ~lt -Yo ~ ~ gt lt~ loJ~~l~~y1 ~~Os~publiccoricepi a~o~tdmiddot(lnkijriyeningalS() affected

themiddotat~fdes~~(ineP911middotmiddot~4 tli~ltc~uits~~t~i)Yete~atlve ~~4~~k~~~tiyen~~ )~i(jii~r ~oi~pletpeni ne~rsfrae~~sUcl1 ~ tbe use

~gmiddotmiddotmiddotoa~ltmiddotbl~Cksmiddot and t~e 4~fjsi()n ~y tlie-Al~o1ionc B~~~tg~~~h~~lComm~iop 0 cuit~ ~~a~ho~~_ inD~ arid re$iauTl1ifS1i~~Qr~bvet middot~coJJrtmiddotmiddotdeciSio~s i~g~ng the liability of i)i~If~(di~ts)or~~iVing dnDJier-s Wh~) w~resugtseqiently jnvolJdin ~ authmof)J1~~t8$lje~ middotht4t ~ siPmcant imp~t on the willingnessmiddotor cortimercW est~blis1iIDentS~ middottomiddot serve aicohol1c ~veragesmiddotmiddot without

~ r~middotmiddotltmiddot ~ t

~-~~~ ~ ~ ~ ~ middotfmiddot

middotbthermiddot~9wlteftn~UreS ApiDStmiddotD~priverS _-~_ ~~ ) p $ ~ p -

Inere~gpubli~concemmiddotapout drunkdriving alsolcentd to a~tronger

fOcuS-bnihe c(ninterii1eaSutes~aicen to limit druDk~diivihg during the - _ HI _ ~~ 1 - bull

1980sinese-ine~i~ tyigti~ally fall into ~hreemyenn categ~ries gt ~~uilkdtiveis olt~~g eVidencemiddot thil~middotth~s-e d~Veis ~

~tuanydrunk ~~rpe~aliiingdrun~ drivers ~ i_ ~)r0 ~

Dr~tirivJDI ~ri~s ~

jUs~ ~~the s~atjsilcsmiddotdein~nstrate a dr~p in drrinkdriyh-tg~actiyity iiid)catethafdrunk drivingarrests fell off dildng the

past d~caa~A~~rdjJigmiddot ~t~~ t~e middotNatioJial HighwayTtaffic-$8fety Admipl~iiati~iJ~middotmiddot~e natiQq~t peak in drunk ~ijyqig eJifdrcement

activityoccurre4 in 19~~when aInt0st 2 iliiJli~ii Pt~ple - approxjmiddotmately ti2 percent~o the nations li~enSeddrivers ~ were

middotarreste4IoJmiddotdrtintltdriving Nevertheless t~e Natio~~rligh~ymiddotSafety Admilfs~ration~stimateS hat even during the p~k years of enforcement police nati6DaIiyapprehendedmiddot only 1out 0(500 people who wercdriving under theinfluence of alcohol atamiddotgiven time

According to infonnatiol1 frtgtm the Office of the Commissioner of Probation enforcement in Massachusetts peaked a little later than

Nichols JL and Ross HL Th~ Eff~elivtM$$ 0 Saneiomor DWI Oftndns paper presented at the International Conference on Alcohol Drugs and Traffic Safety October 1989 Chica80 Illinois

204 CMR 403 adopted December 10 1984

-~

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lt

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01

19 bull 1 I

39~9i2 - UOS~ 31~1700 40251100

79l

180

SENATE shy No 1900

I ~

~ IS74 - 2S87 I

291C)ooQ - i 36414oo

~

DUlIAreSh ric~sed Driv~n

1990]

Amiddotti~t Rate per ~ ~ l~~DriYers J 1~B7 shy 710 ~

r - 1 ~- ~+ - - - ri

- SO~e ~n~tC P~st- _AUdit and~v~iBht

r-~-middotgt7~ bull ~ ~ ~ 1~ ~ ~

i~gsc~ gt middotOL gt bull bull _ Themes~iratcdncrea$ed263 percent from 1970 to 1984 from

~ shy ~- iai~~lO bull~ariestsptriOOoIicen$eddrivers~~-_ ~ _~ ~~lmiddot ~ ~ gtshy bullbull - __

_ ~ - Be~weiit198()-and 1984 -~he drunk driving arrest raie rose 47 ~ bull ~tf1~t 4 _ bull bull bull - 1

pei~nt ~9ntiiluingt~e~PQsitivetrerid established-d~g the two S p~e~~pifii~yearpeii~ds - shy gt - -~ S~t~84~~arre$ti~t~ h~ d~cIined 24 percent

Tfi~~ii~tff~t~~t-i~OOo licensed 4rivers ini989 (791) is only gt 1pound~nffil8her tbijiit~e i98() rate~_ -T

_ ~middot~--I ~ - 1 _ ~ bull bull bull ~ thF~ ~~~com~tmg explanatio~ for the 24PerCent~c=Crease in drnlt~t~g~Cyentivitysince 1984The t-rstexp~tion

favoi~qbYanu~ber-ofpoJice admiJiistrators is that P8st~nforcement and acfjap2eindQver bChavi()r ~ responsible for the CI~rCaSing rate of aq~$(~~ According to th~ theQry there are f~w~~altestsbecause past enforcement efforts-have successfully deterred d~ driving so

that there are fewer drunk drivers on the roads to apprehend There have not been any local studies to test this explanation~ but few safety experts have been willing to accept this type of anecdotal data on face value

19

1shy

1

1 I

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~

j -

SENATE ~ No~ 1900 December

Acts of 1961 Chapter 340

14 MGl Chapter 90 Section 24f

1990) 1 lt SENATE ~ Nol900 _

-~~ ~

~i -

PenUllog Drunk Drivers

The Massachusetts system for penalizingdunk drivers includes middotlicense suspensions or revocations fines education and treatment and incarceration The penalties are graduated into three main steps such that theybecome increasingly intensive and they are determined

IS Digesl of Slale Alcohol Highway SafelY Relaled Regulalion eighth edition National Highway Traffic Safety Association

11

- ~

gt SENATE shy No 1900

-

~

[December

~

gt

See Acts of 1982 Chapter 373

c

13

i

- f -- ~ _ gt bull $ -

~i~-~~(~~ ~ ~ ~~ middot(Jey FW4iDgS~ ~ -

- ~_~ _~ ~~ ~ g- ~~ 1__ I bull J

bull ASS1~~~nts-to middotir8t offender programs hv~middot d~crea$ed 20 perceilrsincefis~aLyear 1985i mirroringJh~~~hllng auest tate

bull A~sigriments to the second ~ffenders piogr~~h~lV~deereaSed bull lo _ (

but te-middotdeclirie~has not been as sharp-as fQrthe first offender

(- ~ J)rosr~~ -~ imiddot cmiddotbullbull ~~-- r middotltThe Departme~t of Public 9f Health r~portsltthat while the

frequenCy o~adtni$~i()ns to th~ 14-day trtmen~J)r()gram has middotdecreasedover the last~five years~the demographic cJtaracteristics of fitstand $~cond offender drunk dovers have rem~ined fairly cOnstant includingtheir aver~ge age (approximately 31 ye~s)middot Furthermore inmiddot 1989 when there-were 33709 arrests 2550 drtink drivers (76 percentwent to jail in 1984 when 39912 drunk drivers were arrested 2006 of them were sent to jail (50 percent)

bull bullbull bull

17

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-

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accur~~y

SENATE No~ -1900

[December - -1

sECnorit~REE I~~VESIN ~IMPLtEi)CONSENT J - po ~ _ --- ro bull

Int~ s~ctio~iof- themiddotr~o~ve 10~ka M~sa~hu~itS~ experience withf~tiilg for~lPt~xication~ nctthe implied conselli law Wcentthen e~amirttlieinw~~f~e~~~p~6(J~~ li~ on~~ain~s aDdmiddot~nmiddot

Ul~eqr~~ineDt ~syst~in ~a~~()Y~~1detltifY thieemiddotprD~~erils with - ~hcentJa~~s~tnp~~~atiQ~th~q~ngmiddoti~reflS~middotrat~1ui1ohgdet8iJl~s

middotmiddot(middot~~middotfP~~~q~I~~ac~~e~~~t~cen~e~sus~~i~~(~h~~~ ~hp ~emiddotil1e- test and faiJ~middot~iidfinaJI~tl1flack9fjdequat~iecoidsmiddotQllwhether the test was iidfu1nister~accepted middotormiddotfCieetectmiddot gt

~~~~jgtt~middotc~-ltmiddot TJ~(~ic~aeY9f1Ji~Tests ~

~7 bullbullbulll-~ - _ bull bull _ - _

Th~i~ middotis-inc~~~g evidencif that th~ tcentst pr~ltUresin place in yen$~U~~t~~u~e_lair pJa-yXor ttSt)~bjects~ft~ tb~tmiddotth~ infrared

iDaelJll~~ reqqired by the~w are accuratecanci teliable In what is ~~~~pg~I~~~~k c~e-in~~e fi~Ilt4Sat~ 6fJV~~Je~se~ v Andrew l)omiddot~m~ et ~l~Jle Supreme Co~ of ~~wJeJSeyhel4~tpat ~ch tes~~

~~c~~~~~~~~in~ ~gt ~ ~~~~ gt ~ ~ We-areconfiaenn~tcontInti~useoftheb~atfW~rwjllnot lead to unjustmiddot~~~vleti9~-The ~le~~ ~deii~ IS m9tet9ii~1~ive now t~tve(iliat ~e cbilQCe$of-ove~ti~m~tjonmiddot are ~Jaotdnarily ~

sm~l1middotmiddot middot ~fTbe b~ath~~er ismiddotmiddot)i~asSedin -i~ cQinbined pr~~ticalitymiddotmiddotampil4 use~~ssh em OJ he low side 111 a sl8nficant nu~ber ofcases in-order not to overestimate bloodmiddotatcoholin the

middotmiddotgreaies~j)ossibenumoer OfC8Ses~ Wi~e~ ~Vinlted this ~jusifiable middotmiddotiifltgtr4~r to furthermiddot the legislatures wilt ~rid middotmaiDtmefficiency in cmiddot

oiu~ystemQtJustiCeP ~ _ lt1middot~~middotmiddotmiddotmiddot ~t~ ~ ~ -~~ - -- ~

TheVqwnie tilSe is especially valu~bl~ ~ec~use ~lt)stl9f tJte leading expert~lp the ftefd~pPearcentd and teslifiea5othaftheNew Jersey court had tliebeilefjLofan extraordinarily comigtlet~ ~cord uponwhich to base ~its decision The Downie case reduCes concerns about the

and ~reliability of the breath~test middotJlJachines ~urTentIy permitted by MaSsachusetts law ~- ~

The ieliabiii~y of current technology is beco~ngless of an issue Deliberations jQ Massachusetts can ther~fore f~cus on whether the state wants accurate evidence of alcohol impairment and to what extent it wants such evidence not how the test is administered or whether it is accurate

Stall of Nlw Jersey v Andrew Downie e al 569 A2d 242 (NJ 1990) page 251

25

r J I

bull ~J~i~t Ri ~ gt i~mrmiddot1 ~ middoti~~~~ lt~~~~~$ ~~ ~~~a~~mber) (lIe~fet) middotSiilpeDsl~as ~UI~~its~Cn$ 1

- middot~I986~ middot38iO~9middot - 9449 middot2S NA J I middotmiddott~~l~ t~a8J66o c ~~ 13510 36 2608C)middotd

middotmiddotI~~~J~ i~~~~l~ 3~C ~~ml

1middotgt~~atePcrst A~(iifil~CI oVCrsi8h middott cStima te ~ ~ -I

sect~lIlc MA~J5~centlsirY ~pdotor ~Chi~ICS _ ~l I ~~ gt1 i

~ 1

Ij~~~~~~ qgt ~~~ceJ986~middott~ep~rC~iltage of pe~onsr~fus1Dg~o J~e a breath

orJ)loOd~tes( aft~r arrest for drunk dtiving hasJncreased 44 - p~~~n~lrising f~Qll2S percent to 36 ~rc~rttlt

middot ltOut of33imiddot7~ p~~pl~ -yenr~ted -fo~ dru~dri~i~gj~Massachushy 0 middotsettsciuiiJig-198~12279people refused to take abfeath or blood test -and~()nly U~639 actually took a breath ormiddot bl~od test arter ~ JliTestmiddotmiddot -

bull Registry ~tMotor Vehicles and Office of Alcohol Testing reports do not indicate and cannot account for whether or not 9791 of the states 23918 dnitlk driving offendersin- 1989 were offered a breath or blood testand whether they took or refusedihat test

26 SENATE - No 1900 [December

Ie Of the 11639 offenders who consentedmiddott~ a ~~eath or biood test in 1989o~y6998 haeJ theirJicensessus~middotnded under the provi- sionS of~he-~aamimstraiivePerse role

There ~r~-three~~se~o~ pr~bienis jItlieM~~~b~~etts implied consent ~trategy Firsimany offellders are tefusittjto take a test

~ 1~~~~~~~1~~~~ ~t~~ t~1~~4la~e~~e~ fir~t offe~ders ar~~~soretusing~o t~eth~eSF D~ng thepcriodlt

froQll9ampampto-1982)ii~)1mrber of people refuSing teiake the test has rise~ 44 p~r~ent froJl2S percent of those aITested1t) -36 percent of

those arrested gt ~ - bullbull

~ The iniat~forinfor first a~d ~~c~rilaquo(offe~(etproampraritsoffermiddot middot8ddtiQna~vid~Jice- diat the proportion or-clients refUsing middotto take a

~br~at~ tcentsectt~~ter middotmiddot~IT~~tmiddot ~as risen sharply Alice~ t981 andsecond p~ngers il~e)nu~h~orelikeryo refus~ to take~he middottestmiddot During

calepdar ~~rmiddot1989~ percent ~f the second- offendcrs ad~tted to the i4-ltiyiJogran1reported thalt~ey hadiefus~to take abreath

~ bull 0 bull _ bull bull

test c()mp~ to a 33 percent nite for flr$t~offen4eIS ~ The CoDinu)nwealtIj therefore~ must prosecute 8Imost two-thirds

of its drunk drivers without scientific eViden~ - cd imp8irment Mo~eover~J~e pr~s~~i~penalty structure is~i~~ffecii~e~I~ca~mgthe

vast majorityof dninkdrivers to ~onsend~the ~r~th t~~t Second roughly oile-tbird ofthosewhp~taketb-e bteatbmiddot test and

arefoundtohave alllgh blood aicohol conce~tratioiaren~(getting their licenses suspended Of the 33709 peopie ~~lor drunk driving in MaJossachusetts duIjng 1989 onlyOne-third were documentedHo havetaken a blood alcoh()tteStaftetartestOf those who were dricume~ied to have taken the test (rQtU the Commonshywealths testing experience we could estimate tha~IO800 of these individuals would have had a blood level conCentration of at least 010)8 However datfl from the Registry of Mot~~ Vehicles show that only 6998 persons were suspended under the middotmiddotadininistrative per se provisions All 10800 of those who would have tested above 010 percent however would have been subject to an immediate license

Accordinl to data from the Office of Alcohol Testing only 63 percent of those persons tested durin fiscal year 1989 and 62 percent of those per50m tested during fISCal year 1990 recorded test results of

BACs below 010 percent Given these results it is likely that of the 11639 tests administered in 19Z9 10800 would have BACs higher than 010 percent

SENATE - No 1900 27

suspension 81 aiJai~~e~~there is no ~1earieasonfor the states failuftnO suspen(J the licenSes of Offenders Th~third pio~~em W(~hthe statesimplementatlonoftbe implied

~ consent law is~lli~p~o~ie~tr~cor4 ~eep~ng p1cent riu~ber of people who refuse thehteath~iYi~fan(fthosewho takethe test~c~ouni for only10S perCcent~t9(tat~~~~irestslt ~~very ~isl~rbi~g t~~t_ the state ~l~0~acc9ui1~fqr~t~qpL~Opercent ~I itscaSeSltt~~ ~ gt~_

Sorn~Qf-tht(~uiirepq~~d casestn~y~ hav~ bcent~J)middot~p cit~~mstaJices wheii~~~poli~~iriad(~aij~~ts gtwithOut offerbigtbe tesi niis oCcurs

-J ~ r middot~middotmiddot-i~ middotr~ - __ r - - - -

wh~~ ~secteCp~~~ofic~r ~~np( ~v~ljPJ~ t~_ ~it_n~~~~h~ ~esliHr wheremiddot thercent it~no qualifiedbreadttest oper~tor prese1itcFhi~oC(ursmore

middot~~ f ~ ~ bull - bull ~ bullbull J - - bullbull ~ _ j J bull bull _ bull bullbullbullbull shy

fr~qu~ritlYin_~PIaJ~r~pat1ments Tlielaw r~quir~llfa(iirtJl~)vent

thatt~~lis~~J~fu~~~gta-~cp~~ical test- wh~n~qqe~ted tli~ officer L~c Jiii~gfli~treq~~sfsli~lf~piJllediately prepar~ a~ptfenlepqFrof s1ch ~ ~ ~ jrrefusaIarid~ thtfthis r~phifmust bet end()rseltt6y~tliirdpeison ~who -~~-~~bad i~iiesseltl jJ1~refu~Waowever~hetej~nsect Way Q~o~what _-

r ~ tOpartQfJhe 30middotpe~ntojdie unreported casesis1111Ci tQ t~i~Teason~2o lt gtj q ~ltmiddotgtgtigt lt ~-

~ ~i~ SECT10N FO_~ s~~~~~y ANDRECO~~~~J~r~~N~ Cle~rly the G6Q1ni~n~ealths comQ1itDen( ~~diu~~ driving ~iet1tnce hasti~n i~~oya~~~e s~bst~tial~a~~ sfifssf~~Glt~n~es

10 law~ and recentc()urt de~ls10ns aff~tm~ ltabiAty~for d(Unk dnv10g -accid~iltShave h~(f asigl~ant influence on red~~iiig~r11nk4riving as diq iip~reAAe~rl~welif()rcenient The Com~dilw~a~li~s~~uccess is

also ~itti~utahdo strongpuhlic awareness andconce51L~(ltliedeshydine indrinkll)g~~and thechanging demographicsOf (lie dpving popuI~tion middotfmiddot

Alsltgt in spiie6f noticeable decreases in sevetal~n1nk driving countermeasuresduring tlle latter years of the decade state efforts to deter and identify drunk driving during the years 1980~to 1989 far surpassed the efforts made in the preceding decade (see Table V)

9 MGL Chapter 90 Section 24(1)

20 The Commonwealth must address the problem of circumstances arising when there is no witness to a test Just as local fire departments frequently rely on mutual assistance from other communities police departments must make arrangements for mutunl aid cr for centrJlizeltesting of drunk drivers especially in the more rural areas of the state

SENATE - No 1900 bull [December8

~ SECTIONONE MEAStRlNG ~LCOHOL-REtATED FATAL CRASHES

This seciion qef~~s drunk driving a~~ the~ tt~es the changing rate of a1cQhol-r~latedfatal cras~ in Massachusetts ov-cr the past ~decade -It ses ~tW9 $tirrogaie ~e~uies~of d~ drivmg ~gh~time d~atal ~qtQ4toQil~ ~rashes and asubStCltr ihi$ gfOUP~ single car n~ghttiihefata1Ci~hes -

p~~~~+( y 1 for thep~rpqses Qfth~ ~poJ1 dru~J(dtiYi~g~me~sthat a person

ismiddotopeialmg ~~jii~tor- yehicle witli a~blQ~)~L al~ohQf middotcltgtncent~a- tqI1 (Q~~ otO~()~percent or $Ofe Thjs~tlie le~lat whicha~son cap-~~)~ aTged~~n thec~iine of ~rlvitig~nder ~~bemiddotiPfluenCeQf ltquqrlt DU~L)i M~acluis~tts ~Bti9~~Y~ thelenlJodhis offense is ~djL~irigwhile middotiltoxi~ted~(DWI) ~ ~bull~ bull lt

)f~~1~iSQnop~raie~ a ~t~~~~l~l(wiha~~ of OlQperce~t or mo e~ Massac usetts -law raISes a pr~$QIDptJonmiddottbat thep~son IS

ctrunk7 tn~factmiddot~piaemlologicaI st-lid~e~Jiave sh~wn thilt~lie risk of an autofuobile~)ashmiddotbegirismiddot to ~~ signijicantiy wit4~ blooo alcohol

conceJitraiion oL90Spercent so the sta~ftoiy thresholds are qu~te t ~~ ~ - lt shy reasona~I1e- ~~_ bull A 150PQund~rs~n would have to lirtiitJiisoih~~-drinkjhgtono

more tii-an one lJrll1k p~ihour to aV6idilmiddotbJ(ntdwcohollevei of005 peic~~~~ r~a~~ia~IQod a~cohorley~l ~~Q~ (ORer~ilt li1s ~~me i~o pound nCfS9n w01ldmiddothave to cons~me$eyendrmks ~~eN~fourhour ~~i~d~l~4rinyen~~sequ8I to oemiddotQ~ce of tltO~ pro~fWh~~k~y~ ~ three ouncegl~of yt1tleior a~welve ounce cont~l~r ot~t The average BACotthQse atre~ted for drunk driving iIi MaSsachusetts during 1989 was 017- percen_t~ - ~ gt

shy

Measui~of I)ru~~Drlving ~ -

The best measure of whether or not a driver has consumed alcohol prior to an automobiie crash isto measure tlie drivers level of blood alcohol concentration at the time of the crash Unfortunately BAC evidence is available in only half of fatal crashes in Massachusetts at this time and several years back the information was even less complete

9 19M SENATE - No 1900

WitbQUtreliblcentBA~data~~echose to uSe tw6 surrogate measures to approximate ~he nl1Qi~ of fatal au~omobiIe craShes in which alcohol was illyolved~ nighttime fat81 ~ut6mobile ciasheSand a subset

of thiS Jne8sut~~rljghttitesectrngle Car f~iatcrasti~~ (cr~hes1~tolving ~only ~~ v~hicie~ No(e~i) ~~tal ~ig~i~ime ~utQiilobiie ~rash or

bull ni8htn~ ~~~gl~~~ cr~JjJi()w~vei i-middotca~~~Y ~rdrver ~~o has 0middot~ c~I1amp~~a~~~li91PQor rYisibilify)lIiCllowettiMfi~ vohimeare also

bullbull middotltrmiddotmiddotlt imJ)orlahtcliaec(efutic~~ nighttime (lrlVlng~lt7lt ( gt -c ~~ N~~~ii~a~~~~~iem~~~~a1middottr~ficmiddots~~~ymiddot e~Re1t~~~~t~~~~~ these middotsp1emiddottmiddotW9~eyenyre~ -th~t we use t9 st~dy d~4nV1~gp~ttemsIn faci~~6ut exa~tionmiddot ~fh~ ~cordsIrommiddotthemiddot ~~~~use~tsJ~egistry ~ ~ ltQf Mo~~~y ~~~~o~ ~t~~l~r~l xea~ ~~nrrrin~~ (1l~ d~yers -i~ car - crash~J)c~u~g~~Veen~he ~o~ 9f-6()OP1D1 ap4middot5S9 am are~

2- c ve~iileJyjtci~ti~~~-p~sitivel~~~JSofampl((Od aIC9~breoricentration Theidatfi)lisf1~p beiw~nfa~al~r8shesmvoivjhgdrilnk -(lovers and the tiq1centqfmiddot a8pound~ re~~ci~d in~ation~ ~ta 9f 19a9(~ ApPendix

if Bgt~ Accor4inSI(~~~se nationaldata inore ~lialhaIfof fjtamp11Ylnj~ied bull middotdrivelillfcraSJi~s~middoto~~mngmiddotbetw~en 9~~~Diand S~ ~Ip~ ejcUbit

_ BAC~lJ~)~rmiddota~r~~~~o~~riie~tB~tweeiimiddotmi~~~t~~~~~~~~~ the~ number nses tomiddot 70cperte~t Moteover the datamiddotshow-thatm smgle

car crasneS occUQlng behvee~ 900 pm and 559-am 70middotpercent of Jat~iyi~jiired~~versexhi~HaAltsat~rab~vfO10~rceJi~2

-_gt_-~ lt~lt~~~ _~-) + )~f~ gt - ~lt _- -- ~_ --~L--

Nighttime Fatal A~tombbUemiddotCrashesmiddot bull Igtatmiddoto~~ightfiriie f~ta1-aut~~obile~rashess~ggelttlia there has

been amiddotaecreaSe~indrUilic(Jtiving inmiddot Massachusei~ssi~~e~1979 For thismeasure~ w~ an8Iyzed th~ frequency of nighiti~e(ffom600 pm

- to 559 am) ra~M a~toriiobne crashes during the 1980s-We also compared the~Umber ofnighttime fat~ crashes wiihthenum~r of

dayti~~ra(a1 cr~h~s(se~~fi~re I and AppendixC) Comp~ng nighttime ~rashes withdaytime crashes coptrols for

overall changes in driving behavior changing road or weather conditions from year to year and ~hanging characteristics of the driving population The extent to which nighttime fatal automobile crashes exceed daytime crashes may be an indicator of alcohol involvement Moreover the extent to which trends in nighttime fatal

2 Facts Insurance Institute for Highway Safety 1990

~

- tmiddot

-~

~ 84 46 8~ middot~8l t 8~ ~ 89 Y~ar (

J bullbull __ ~r

~

SENATE- No 1900

--shy~--~~~~-lt~~~- gt- ~~ ~_-_-~~-~_~- --=shy

~~lt ~ middotmiddot1middot - - shy gtr~-

l bullbull

$--19 -eO~(81 82 shy ~

~ tmiddot

- ~ ~ ~ - t bullbullbullbullbull ~ - shy-_ ----r~~~~

10

-I -

Single CarNighttim~middotFatfCrashes Datil on nighttime singlecarcrashes also sugges~that the~ebas been

a decrease in drunk driving since 1979 For this irieasure we analyzed the Dumber of single car fatal crashes occurring between 900 pm and 559 am during the 1980s (see Figure 2 and Appendix D)

~( r- ~ ~ ~lIlelry olotar Vlllltle -

~~ f~ Poet -~n ~_nd Ove ~O

-FllilreI ~ - --- y - ~

I It w -gt bull

~ ltII bull - ~ s ~ -

jr~-crash~s do noisect~~~ro~middottr~~dsjn daytime fatalcr~~e~ rit~~ alsobe an bull + -indicator of cllilnging rates of alcohol involvem~nt

---- c bullbull

~middotmiddot~~~crmiddotmiddot r

-~~i~tn~~~~rmiddot middot~V) 2t- if bull Nightt~~-f~tal ~r~~es reached an all-time highin(f979 w~th a

t9~~lQF6~9fatal crashes but the numQerQ centr~slies declined dupng ~Ii~~~x-t 4e~~ulet reachin~a ten year1owof)S6 crashes in 19~9~ a 43perqentdrop _ ~r

bull Wille nithttime (fita crashes were declining betwe~ll 1979and -1989t theDumberofdaytimefatal crashes rose 14 percent shy

c

11

bull

bull SINGLECAR NlGHTTlMSiFATAl CRASHES ( 900 pm ~659 middotmiddotmf shy ~gt 1917--1989middotlt

r - ~ r ~ -

-

I

~ - ~ 1101__ ~~~~ _-~~-Lo-~L--~----_I--~~_ ~ lt ~ 78 71 oeo 81shy

~) r-~ pound~~~~~jtS~~~Lt~2middotmiddot ~ gt -~1oJ ~It ~ 0- 12180

~~~~~ [lt20 gt ~ $ipgl~ c81 DJgh~tiple fat craShes froni 336 crashesin 1979~

io~iin1989aj4Z percent decrease bull ~~t lt~ ~~ ~~r ~

shy -- ~FtaI~CJa$hRata~ -- middottmiddotmiddot

~e -i~~ Ji~ ~trol f~r middot~~~gesJn the numbe~ otmiddotdriye~$on the to~ we f caloulatecfthe faUimiddotciash-nue fOt everYIO~OOOlice~ cldVeIs both

(otMttinefattiicrashes and for siDgIe~ nighttim~ fatar~aslies -To~~~hether t~tCbasbein areducjonmfatamplldeseveJi-among--die y(iungest dri~en we- collect~ more ~ltCifiC d~ai forone~ofthe ~urtpga~sect JJ1~8s~~S ~(drunk dyenng -D~ttim6~fi~-c~ -Cr~hes middot-ACCtltJi~g totoe age of the automobU~opera~01linyqlved We e~aminect two agecohorts of drivers driyeri whowere twenty yearsof ageai)d driversmiddotWho were nineteen years-_ofagt and under and thenre~Wed the frequency off~tal cnlshe~~Qry~u~dri~~in 1979 198j~ 19~5gt and 1989 To account Jor poptdatlon c~ges we converted the delta to a rate fOf every 10000 licensed driVers (see Table f)

-

~ i

f J

-

f shy

r- - ~~

-

middott

i-

- - _ _ shy ICe]FDiding -- - shy bull - -shy-

tmiddot ~ r ~ ----- bull

bull ~~h~ ilu~~(of njsbttime fatal c~ashes per te~ tho~and licensed driVers dropped S~_percent from 179 crashes in 1979 to 084 crashes pe~ 10tOQO licensed drivers in 1989~

bull oF

I

4 See

S

bull

ltU~gt

hmiddot~in~tIiemiddotdeC~e

middotmiddotbullmiddotmiddot

~

=~= ~

1990) SENATE - No 1900 13

bull Thef~ticmby~~fnighttimefatal crash~ a~~ng~teenage drivers dropp~d sh~iy(approximaiely 51pecent)middotbetween 1979 and

1983 - -~ ~ ~ ~ - ~ bullbull FrotPmiddotJ979 t~l1~~~tth~middot Dlght~iD~ fa~aI~t~~ ~ait~d~eased 47

pet~ltf()rtag~~middotmiddotand~5~rceQtfoiJw~tyyear oJ4 drivers bullbull - bull middotmiddotmiddot- bulltAmiddot ~-f- t _ bull bullbullbullbull ~- r f bull - bull bull bull

Iii 1919esjliJecarmiddotnightt4D~Jatalciash-rateforevery 10000 ij~~~f4ri~~~~~~middot O9S~by~he en~Q~ ~~~~ t~emiddotiate had fallen JomiddotO4~~per -l6~Jl~~d dJjvers a52 ~rcentdrop ~

j-Ji-~~(gt r middotmiddotmiddotWbt~ebullbullbullStiQ -~

~ r~ (middotmiddotI-_$~~ -~ ~Jr--lt- bull ~~ lt--~ bull

middotThe~lw~s1rrogt~middotineaSuresmiddot of middotdrunkdriVingmiddot bQtb suUest that fthere~~~Jiie~ middotmiddot~libStantial deCr~~~in aicori()lreia~a fatal crashes middottsin~~1~1jr~foiiui~teJY~ ~lt~rge P~ ofjt~~~d~iine~ocCJJt~ ~arly

~Qo Cf the deqMtS e~flyg8ins did not erode over Cii()he i~niaigderJof t~~ ~l~e~eveniJ1ougli~lj~r~ was sigiilil~~( growth

middotmiddotmiddotmiddotmiddot~middotildhe~i1eofdl~ dfiyening populati9nan~ middot~middotmiddotsl~lcentampD in~~e~ in the YIli~b~~1~e)nil~~rlye~~ In f~Ctpre~aiymiddotfig~s suggest that r~o~par~d~to-l98~mgbtti8)e fatal crashes~~ontinue(H~ Qeclirieduring tli~fuSt~itmiddotmpntl)~fJ~ ~ middottmiddotc lts~middotmiddot

Putjai~elti ~~C~ ~at~on~ (~ta indc~lei~~t M~sachusetts had areI~iv~~etyrecotd~tJi~~ was ~ongthebestiriJhecountry A~ong

_ ~~~~ JJor1bull s -1_ bull bull

~e highlyj)(jpul~~d)lidustrial states onlyNew middotJe~ey hadmiddot a lower ni8bttjmeJai~ciaSh t~te than ~~sachusettsmiddot 1 ( ~

middotRegaidles~ oftlieIeiuction in QighttiDicentfitalcrashea among young drivers since 1979~ rialion81 dat~ iridicatethat thedrivers whomiddot are

_ ~ - ~ prohibited~ by l~ (9in purchasin~ or beiJlgpublic~yserved alcohol are still fo~r time~ JtiQr~ likely to be involyed ijla nigltttim~fatal cr~h than the rest of the driving publics WithinMaSsachu~tts in 1979

these operatQrs made-up 10 percent of the dnVirigpopulationmiddot yet accounted or34 percept of nighttimefatal crashes today they make up only 9percent of all drivers yet they produce 30 percent of all nighttime fatal crashes

The states driving population grew by 614138 persons from 1980 through 1989 and over 90 percent of that growth occurred in the

Acxordiog to figures from the Department of die Registry of Motor Vehicles the number of miles driven in MassachUletIs rose from 3S2 billion miles in 1979 to 442 billion in 1989

DrunJc Drillinl Enfoc~mmt in MtlSsachuutu HtIS the Effort Staed Massachusetts Sen Ie Commitl~ on Post Audit and Oversight November 1988 See panicularly discussion on pllges 6 to IC

IRS Facts 989 Insurance Institute for HighVi~y Slfe1y

gt~middot14 [December

80 81 82 83 84 85 Fiscal Year

MA Dp~tllnt of Rftnu 7180 Snet Po- Audit andOftloll 12180

Flaur 3

- -1990] -SENATE -- No 1900 15

-~- ~

SECTION TWO LEGAL AND AD~TRATIVE CHANGESAFFECIING DRUNK OiuVlNG

-~ -DtnuNC THE 1980s- shybull bullbull bullbull _ - I - bullbull)~ ---~ ~ ~~

lbis ~oJtre~i ~vera1 of~~e mainlegaI ilJ1d administrative _stc- ~~~~Jr(~~cri~IC-~~l~~toco~ttQi~~titk yenvi~~ It reviews -shy

~CJ lA~~dnnJtWamp_agetmiddot the developmen ()f re1)abilitation proshy-it~IQ$~aarchang~jff~~g~n~ties andothermiddotCAuiliermeasures

-~ ~~~~~~~~~ flfgt~ gt ~ gt ~~ bull ~ ~-_ J ~~~~Af~~~beight~~~middotpUi)liccon~rn abQutdnWiig and drlVmg wIraquo~h~Vi~~~ppar~n(iD ibe l~te 1970s andcentar)y 19805 iUpro~pted -shy

ii bf~~~middot~pUbli~p~rceivcent to ~ a draU9~~~ incieasevinmiddot al~oholshylt rela~e4 -rl~ ~r~besamongt~ageIn 1972tt~ st~te ~id penDitted

middot[-f~igttlicdjrSt~(fme thetale of-aicohol~~ pCojl~elgbteen Y~arS of age ~~ otmiddot91aef6 Fbe~gtpublic saw ihis change as a stimUluStoatco~ol-retated ~cr~e~lt~~- ~~ lt _

lt middotWlt~t waamp_l~ceiy~tQ be an i~rease m~he incidence ofdrunk - dri~g~paitisUhirlyamongyoung people iii the 18tC(19708 lCd~~ the

_ltf esbtisnment ~of action groups such as Motherst AgaiQst Drunk ~gt- Diwiligt~ADD) and StUdents Xgainst D~ IgtriVingiS4DD)

middotfTIitse aeti~i$f8roupsmiddot~eie- able to gaiD -media~~ntiop iii a ~aDner ~middot~ltmiddot~Jhatdwane4the public middotattentionmiddotto earner efforts to curb drunk

lt driVing gt - - -

~ 8Ymiddot1979~middotd~nightti~emiddotmiddot(atalcrash rate of dnyer~tw~tyyears old anctunderwas~almo$fflve times the rate of that 9fall6ther drivers This trencl~h~roUghlYmiddotmiddot alarmed the public 8ri~ a newly elected

governor had made campaign promise to changetheage at which a person could purchase alcoholic beverages In 1979the drinking age was raised to twenty years old This was the fiiSt ofseveral legisshylative initiativesdesigned to reduce drinking and driving in Massashychusetts The drinking age was once again raised to age twenty-one in 19848

6 Acta of 1972 Chapter ISS Section 2

~ Acts of 1979 Chapter IS Section 6

bull 8 Acts of 1984 Chapter 312fmiddotmiddotmiddotmiddot

16 -(SENATE - No 1m [December

shy 7- - ~

Tb~ Impact of Legal ~bang~ ~gt-~) Throughoutthe i980s the state made s~veralmore legislative

changes t(fre4uc~ th~ incidence otdrunk driving With each of the legislative changes there wasa noticeable decrease iJidmnk driving activity In i982 the state increased penaities for drunk driving including makiilgjall sentences mandatory for a arletyof-offenders10

When the impact of this act appeared to bedeclininJ by 1985 and 1986 the state passed The Safe Roads Act in the later part of 1986

bull For an excellent discussion of past efforts to deal with this problem see Deterring The Drinking Driver H Ross revised and updated edition DC Heath and Company 1984

Acts of 1982 Chapter 373

I bull

middotmiddotmiddotmiddotf i f

p

II

2

~d~e~~~~if~er

beh~viq~~middotl

~fjmiddot~tftJlt

~r i-est~a~Cmiddotmiddot

-

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~

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arresihi

-~~0--middot~middot

bull ~statisti~y~o

_-0 ~ lt - _ bull ~

~NATE - No 1900 17 - -

~ Thejn~~nto(TheSAre ROad~A~t was to make adjuditati~nfor drunk an~tmiddotmiddotmak(Pe~aIties more middot~~middot~bl f~t as recentmiddot

anaJYl~~~tof~d~8teth~middot~sutanc~tHatjudamp~entwQ~ld~_swift anti~e~ri is th(~O~L~n~~iye Yay t9 b~ve C JJipact ~n p~blic

~~~ ~lt -Yo ~ ~ gt lt~ loJ~~l~~y1 ~~Os~publiccoricepi a~o~tdmiddot(lnkijriyeningalS() affected

themiddotat~fdes~~(ineP911middotmiddot~4 tli~ltc~uits~~t~i)Yete~atlve ~~4~~k~~~tiyen~~ )~i(jii~r ~oi~pletpeni ne~rsfrae~~sUcl1 ~ tbe use

~gmiddotmiddotmiddotoa~ltmiddotbl~Cksmiddot and t~e 4~fjsi()n ~y tlie-Al~o1ionc B~~~tg~~~h~~lComm~iop 0 cuit~ ~~a~ho~~_ inD~ arid re$iauTl1ifS1i~~Qr~bvet middot~coJJrtmiddotmiddotdeciSio~s i~g~ng the liability of i)i~If~(di~ts)or~~iVing dnDJier-s Wh~) w~resugtseqiently jnvolJdin ~ authmof)J1~~t8$lje~ middotht4t ~ siPmcant imp~t on the willingnessmiddotor cortimercW est~blis1iIDentS~ middottomiddot serve aicohol1c ~veragesmiddotmiddot without

~ r~middotmiddotltmiddot ~ t

~-~~~ ~ ~ ~ ~ middotfmiddot

middotbthermiddot~9wlteftn~UreS ApiDStmiddotD~priverS _-~_ ~~ ) p $ ~ p -

Inere~gpubli~concemmiddotapout drunkdriving alsolcentd to a~tronger

fOcuS-bnihe c(ninterii1eaSutes~aicen to limit druDk~diivihg during the - _ HI _ ~~ 1 - bull

1980sinese-ine~i~ tyigti~ally fall into ~hreemyenn categ~ries gt ~~uilkdtiveis olt~~g eVidencemiddot thil~middotth~s-e d~Veis ~

~tuanydrunk ~~rpe~aliiingdrun~ drivers ~ i_ ~)r0 ~

Dr~tirivJDI ~ri~s ~

jUs~ ~~the s~atjsilcsmiddotdein~nstrate a dr~p in drrinkdriyh-tg~actiyity iiid)catethafdrunk drivingarrests fell off dildng the

past d~caa~A~~rdjJigmiddot ~t~~ t~e middotNatioJial HighwayTtaffic-$8fety Admipl~iiati~iJ~middotmiddot~e natiQq~t peak in drunk ~ijyqig eJifdrcement

activityoccurre4 in 19~~when aInt0st 2 iliiJli~ii Pt~ple - approxjmiddotmately ti2 percent~o the nations li~enSeddrivers ~ were

middotarreste4IoJmiddotdrtintltdriving Nevertheless t~e Natio~~rligh~ymiddotSafety Admilfs~ration~stimateS hat even during the p~k years of enforcement police nati6DaIiyapprehendedmiddot only 1out 0(500 people who wercdriving under theinfluence of alcohol atamiddotgiven time

According to infonnatiol1 frtgtm the Office of the Commissioner of Probation enforcement in Massachusetts peaked a little later than

Nichols JL and Ross HL Th~ Eff~elivtM$$ 0 Saneiomor DWI Oftndns paper presented at the International Conference on Alcohol Drugs and Traffic Safety October 1989 Chica80 Illinois

204 CMR 403 adopted December 10 1984

-~

c

--

~

lt

gt ~

- gt

01

19 bull 1 I

39~9i2 - UOS~ 31~1700 40251100

79l

180

SENATE shy No 1900

I ~

~ IS74 - 2S87 I

291C)ooQ - i 36414oo

~

DUlIAreSh ric~sed Driv~n

1990]

Amiddotti~t Rate per ~ ~ l~~DriYers J 1~B7 shy 710 ~

r - 1 ~- ~+ - - - ri

- SO~e ~n~tC P~st- _AUdit and~v~iBht

r-~-middotgt7~ bull ~ ~ ~ 1~ ~ ~

i~gsc~ gt middotOL gt bull bull _ Themes~iratcdncrea$ed263 percent from 1970 to 1984 from

~ shy ~- iai~~lO bull~ariestsptriOOoIicen$eddrivers~~-_ ~ _~ ~~lmiddot ~ ~ gtshy bullbull - __

_ ~ - Be~weiit198()-and 1984 -~he drunk driving arrest raie rose 47 ~ bull ~tf1~t 4 _ bull bull bull - 1

pei~nt ~9ntiiluingt~e~PQsitivetrerid established-d~g the two S p~e~~pifii~yearpeii~ds - shy gt - -~ S~t~84~~arre$ti~t~ h~ d~cIined 24 percent

Tfi~~ii~tff~t~~t-i~OOo licensed 4rivers ini989 (791) is only gt 1pound~nffil8her tbijiit~e i98() rate~_ -T

_ ~middot~--I ~ - 1 _ ~ bull bull bull ~ thF~ ~~~com~tmg explanatio~ for the 24PerCent~c=Crease in drnlt~t~g~Cyentivitysince 1984The t-rstexp~tion

favoi~qbYanu~ber-ofpoJice admiJiistrators is that P8st~nforcement and acfjap2eindQver bChavi()r ~ responsible for the CI~rCaSing rate of aq~$(~~ According to th~ theQry there are f~w~~altestsbecause past enforcement efforts-have successfully deterred d~ driving so

that there are fewer drunk drivers on the roads to apprehend There have not been any local studies to test this explanation~ but few safety experts have been willing to accept this type of anecdotal data on face value

19

1shy

1

1 I

~_ bullbull

~

j -

SENATE ~ No~ 1900 December

Acts of 1961 Chapter 340

14 MGl Chapter 90 Section 24f

1990) 1 lt SENATE ~ Nol900 _

-~~ ~

~i -

PenUllog Drunk Drivers

The Massachusetts system for penalizingdunk drivers includes middotlicense suspensions or revocations fines education and treatment and incarceration The penalties are graduated into three main steps such that theybecome increasingly intensive and they are determined

IS Digesl of Slale Alcohol Highway SafelY Relaled Regulalion eighth edition National Highway Traffic Safety Association

11

- ~

gt SENATE shy No 1900

-

~

[December

~

gt

See Acts of 1982 Chapter 373

c

13

i

- f -- ~ _ gt bull $ -

~i~-~~(~~ ~ ~ ~~ middot(Jey FW4iDgS~ ~ -

- ~_~ _~ ~~ ~ g- ~~ 1__ I bull J

bull ASS1~~~nts-to middotir8t offender programs hv~middot d~crea$ed 20 perceilrsincefis~aLyear 1985i mirroringJh~~~hllng auest tate

bull A~sigriments to the second ~ffenders piogr~~h~lV~deereaSed bull lo _ (

but te-middotdeclirie~has not been as sharp-as fQrthe first offender

(- ~ J)rosr~~ -~ imiddot cmiddotbullbull ~~-- r middotltThe Departme~t of Public 9f Health r~portsltthat while the

frequenCy o~adtni$~i()ns to th~ 14-day trtmen~J)r()gram has middotdecreasedover the last~five years~the demographic cJtaracteristics of fitstand $~cond offender drunk dovers have rem~ined fairly cOnstant includingtheir aver~ge age (approximately 31 ye~s)middot Furthermore inmiddot 1989 when there-were 33709 arrests 2550 drtink drivers (76 percentwent to jail in 1984 when 39912 drunk drivers were arrested 2006 of them were sent to jail (50 percent)

bull bullbull bull

17

~

~ middotc~)middotmiddot ~

~

- gt ~ -ilt c

-

bull gt

accur~~y

SENATE No~ -1900

[December - -1

sECnorit~REE I~~VESIN ~IMPLtEi)CONSENT J - po ~ _ --- ro bull

Int~ s~ctio~iof- themiddotr~o~ve 10~ka M~sa~hu~itS~ experience withf~tiilg for~lPt~xication~ nctthe implied conselli law Wcentthen e~amirttlieinw~~f~e~~~p~6(J~~ li~ on~~ain~s aDdmiddot~nmiddot

Ul~eqr~~ineDt ~syst~in ~a~~()Y~~1detltifY thieemiddotprD~~erils with - ~hcentJa~~s~tnp~~~atiQ~th~q~ngmiddoti~reflS~middotrat~1ui1ohgdet8iJl~s

middotmiddot(middot~~middotfP~~~q~I~~ac~~e~~~t~cen~e~sus~~i~~(~h~~~ ~hp ~emiddotil1e- test and faiJ~middot~iidfinaJI~tl1flack9fjdequat~iecoidsmiddotQllwhether the test was iidfu1nister~accepted middotormiddotfCieetectmiddot gt

~~~~jgtt~middotc~-ltmiddot TJ~(~ic~aeY9f1Ji~Tests ~

~7 bullbullbulll-~ - _ bull bull _ - _

Th~i~ middotis-inc~~~g evidencif that th~ tcentst pr~ltUresin place in yen$~U~~t~~u~e_lair pJa-yXor ttSt)~bjects~ft~ tb~tmiddotth~ infrared

iDaelJll~~ reqqired by the~w are accuratecanci teliable In what is ~~~~pg~I~~~~k c~e-in~~e fi~Ilt4Sat~ 6fJV~~Je~se~ v Andrew l)omiddot~m~ et ~l~Jle Supreme Co~ of ~~wJeJSeyhel4~tpat ~ch tes~~

~~c~~~~~~~~in~ ~gt ~ ~~~~ gt ~ ~ We-areconfiaenn~tcontInti~useoftheb~atfW~rwjllnot lead to unjustmiddot~~~vleti9~-The ~le~~ ~deii~ IS m9tet9ii~1~ive now t~tve(iliat ~e cbilQCe$of-ove~ti~m~tjonmiddot are ~Jaotdnarily ~

sm~l1middotmiddot middot ~fTbe b~ath~~er ismiddotmiddot)i~asSedin -i~ cQinbined pr~~ticalitymiddotmiddotampil4 use~~ssh em OJ he low side 111 a sl8nficant nu~ber ofcases in-order not to overestimate bloodmiddotatcoholin the

middotmiddotgreaies~j)ossibenumoer OfC8Ses~ Wi~e~ ~Vinlted this ~jusifiable middotmiddotiifltgtr4~r to furthermiddot the legislatures wilt ~rid middotmaiDtmefficiency in cmiddot

oiu~ystemQtJustiCeP ~ _ lt1middot~~middotmiddotmiddotmiddot ~t~ ~ ~ -~~ - -- ~

TheVqwnie tilSe is especially valu~bl~ ~ec~use ~lt)stl9f tJte leading expert~lp the ftefd~pPearcentd and teslifiea5othaftheNew Jersey court had tliebeilefjLofan extraordinarily comigtlet~ ~cord uponwhich to base ~its decision The Downie case reduCes concerns about the

and ~reliability of the breath~test middotJlJachines ~urTentIy permitted by MaSsachusetts law ~- ~

The ieliabiii~y of current technology is beco~ngless of an issue Deliberations jQ Massachusetts can ther~fore f~cus on whether the state wants accurate evidence of alcohol impairment and to what extent it wants such evidence not how the test is administered or whether it is accurate

Stall of Nlw Jersey v Andrew Downie e al 569 A2d 242 (NJ 1990) page 251

25

r J I

bull ~J~i~t Ri ~ gt i~mrmiddot1 ~ middoti~~~~ lt~~~~~$ ~~ ~~~a~~mber) (lIe~fet) middotSiilpeDsl~as ~UI~~its~Cn$ 1

- middot~I986~ middot38iO~9middot - 9449 middot2S NA J I middotmiddott~~l~ t~a8J66o c ~~ 13510 36 2608C)middotd

middotmiddotI~~~J~ i~~~~l~ 3~C ~~ml

1middotgt~~atePcrst A~(iifil~CI oVCrsi8h middott cStima te ~ ~ -I

sect~lIlc MA~J5~centlsirY ~pdotor ~Chi~ICS _ ~l I ~~ gt1 i

~ 1

Ij~~~~~~ qgt ~~~ceJ986~middott~ep~rC~iltage of pe~onsr~fus1Dg~o J~e a breath

orJ)loOd~tes( aft~r arrest for drunk dtiving hasJncreased 44 - p~~~n~lrising f~Qll2S percent to 36 ~rc~rttlt

middot ltOut of33imiddot7~ p~~pl~ -yenr~ted -fo~ dru~dri~i~gj~Massachushy 0 middotsettsciuiiJig-198~12279people refused to take abfeath or blood test -and~()nly U~639 actually took a breath ormiddot bl~od test arter ~ JliTestmiddotmiddot -

bull Registry ~tMotor Vehicles and Office of Alcohol Testing reports do not indicate and cannot account for whether or not 9791 of the states 23918 dnitlk driving offendersin- 1989 were offered a breath or blood testand whether they took or refusedihat test

26 SENATE - No 1900 [December

Ie Of the 11639 offenders who consentedmiddott~ a ~~eath or biood test in 1989o~y6998 haeJ theirJicensessus~middotnded under the provi- sionS of~he-~aamimstraiivePerse role

There ~r~-three~~se~o~ pr~bienis jItlieM~~~b~~etts implied consent ~trategy Firsimany offellders are tefusittjto take a test

~ 1~~~~~~~1~~~~ ~t~~ t~1~~4la~e~~e~ fir~t offe~ders ar~~~soretusing~o t~eth~eSF D~ng thepcriodlt

froQll9ampampto-1982)ii~)1mrber of people refuSing teiake the test has rise~ 44 p~r~ent froJl2S percent of those aITested1t) -36 percent of

those arrested gt ~ - bullbull

~ The iniat~forinfor first a~d ~~c~rilaquo(offe~(etproampraritsoffermiddot middot8ddtiQna~vid~Jice- diat the proportion or-clients refUsing middotto take a

~br~at~ tcentsectt~~ter middotmiddot~IT~~tmiddot ~as risen sharply Alice~ t981 andsecond p~ngers il~e)nu~h~orelikeryo refus~ to take~he middottestmiddot During

calepdar ~~rmiddot1989~ percent ~f the second- offendcrs ad~tted to the i4-ltiyiJogran1reported thalt~ey hadiefus~to take abreath

~ bull 0 bull _ bull bull

test c()mp~ to a 33 percent nite for flr$t~offen4eIS ~ The CoDinu)nwealtIj therefore~ must prosecute 8Imost two-thirds

of its drunk drivers without scientific eViden~ - cd imp8irment Mo~eover~J~e pr~s~~i~penalty structure is~i~~ffecii~e~I~ca~mgthe

vast majorityof dninkdrivers to ~onsend~the ~r~th t~~t Second roughly oile-tbird ofthosewhp~taketb-e bteatbmiddot test and

arefoundtohave alllgh blood aicohol conce~tratioiaren~(getting their licenses suspended Of the 33709 peopie ~~lor drunk driving in MaJossachusetts duIjng 1989 onlyOne-third were documentedHo havetaken a blood alcoh()tteStaftetartestOf those who were dricume~ied to have taken the test (rQtU the Commonshywealths testing experience we could estimate tha~IO800 of these individuals would have had a blood level conCentration of at least 010)8 However datfl from the Registry of Mot~~ Vehicles show that only 6998 persons were suspended under the middotmiddotadininistrative per se provisions All 10800 of those who would have tested above 010 percent however would have been subject to an immediate license

Accordinl to data from the Office of Alcohol Testing only 63 percent of those persons tested durin fiscal year 1989 and 62 percent of those per50m tested during fISCal year 1990 recorded test results of

BACs below 010 percent Given these results it is likely that of the 11639 tests administered in 19Z9 10800 would have BACs higher than 010 percent

SENATE - No 1900 27

suspension 81 aiJai~~e~~there is no ~1earieasonfor the states failuftnO suspen(J the licenSes of Offenders Th~third pio~~em W(~hthe statesimplementatlonoftbe implied

~ consent law is~lli~p~o~ie~tr~cor4 ~eep~ng p1cent riu~ber of people who refuse thehteath~iYi~fan(fthosewho takethe test~c~ouni for only10S perCcent~t9(tat~~~~irestslt ~~very ~isl~rbi~g t~~t_ the state ~l~0~acc9ui1~fqr~t~qpL~Opercent ~I itscaSeSltt~~ ~ gt~_

Sorn~Qf-tht(~uiirepq~~d casestn~y~ hav~ bcent~J)middot~p cit~~mstaJices wheii~~~poli~~iriad(~aij~~ts gtwithOut offerbigtbe tesi niis oCcurs

-J ~ r middot~middotmiddot-i~ middotr~ - __ r - - - -

wh~~ ~secteCp~~~ofic~r ~~np( ~v~ljPJ~ t~_ ~it_n~~~~h~ ~esliHr wheremiddot thercent it~no qualifiedbreadttest oper~tor prese1itcFhi~oC(ursmore

middot~~ f ~ ~ bull - bull ~ bullbull J - - bullbull ~ _ j J bull bull _ bull bullbullbullbull shy

fr~qu~ritlYin_~PIaJ~r~pat1ments Tlielaw r~quir~llfa(iirtJl~)vent

thatt~~lis~~J~fu~~~gta-~cp~~ical test- wh~n~qqe~ted tli~ officer L~c Jiii~gfli~treq~~sfsli~lf~piJllediately prepar~ a~ptfenlepqFrof s1ch ~ ~ ~ jrrefusaIarid~ thtfthis r~phifmust bet end()rseltt6y~tliirdpeison ~who -~~-~~bad i~iiesseltl jJ1~refu~Waowever~hetej~nsect Way Q~o~what _-

r ~ tOpartQfJhe 30middotpe~ntojdie unreported casesis1111Ci tQ t~i~Teason~2o lt gtj q ~ltmiddotgtgtigt lt ~-

~ ~i~ SECT10N FO_~ s~~~~~y ANDRECO~~~~J~r~~N~ Cle~rly the G6Q1ni~n~ealths comQ1itDen( ~~diu~~ driving ~iet1tnce hasti~n i~~oya~~~e s~bst~tial~a~~ sfifssf~~Glt~n~es

10 law~ and recentc()urt de~ls10ns aff~tm~ ltabiAty~for d(Unk dnv10g -accid~iltShave h~(f asigl~ant influence on red~~iiig~r11nk4riving as diq iip~reAAe~rl~welif()rcenient The Com~dilw~a~li~s~~uccess is

also ~itti~utahdo strongpuhlic awareness andconce51L~(ltliedeshydine indrinkll)g~~and thechanging demographicsOf (lie dpving popuI~tion middotfmiddot

Alsltgt in spiie6f noticeable decreases in sevetal~n1nk driving countermeasuresduring tlle latter years of the decade state efforts to deter and identify drunk driving during the years 1980~to 1989 far surpassed the efforts made in the preceding decade (see Table V)

9 MGL Chapter 90 Section 24(1)

20 The Commonwealth must address the problem of circumstances arising when there is no witness to a test Just as local fire departments frequently rely on mutual assistance from other communities police departments must make arrangements for mutunl aid cr for centrJlizeltesting of drunk drivers especially in the more rural areas of the state

9 19M SENATE - No 1900

WitbQUtreliblcentBA~data~~echose to uSe tw6 surrogate measures to approximate ~he nl1Qi~ of fatal au~omobiIe craShes in which alcohol was illyolved~ nighttime fat81 ~ut6mobile ciasheSand a subset

of thiS Jne8sut~~rljghttitesectrngle Car f~iatcrasti~~ (cr~hes1~tolving ~only ~~ v~hicie~ No(e~i) ~~tal ~ig~i~ime ~utQiilobiie ~rash or

bull ni8htn~ ~~~gl~~~ cr~JjJi()w~vei i-middotca~~~Y ~rdrver ~~o has 0middot~ c~I1amp~~a~~~li91PQor rYisibilify)lIiCllowettiMfi~ vohimeare also

bullbull middotltrmiddotmiddotlt imJ)orlahtcliaec(efutic~~ nighttime (lrlVlng~lt7lt ( gt -c ~~ N~~~ii~a~~~~~iem~~~~a1middottr~ficmiddots~~~ymiddot e~Re1t~~~~t~~~~~ these middotsp1emiddottmiddotW9~eyenyre~ -th~t we use t9 st~dy d~4nV1~gp~ttemsIn faci~~6ut exa~tionmiddot ~fh~ ~cordsIrommiddotthemiddot ~~~~use~tsJ~egistry ~ ~ ltQf Mo~~~y ~~~~o~ ~t~~l~r~l xea~ ~~nrrrin~~ (1l~ d~yers -i~ car - crash~J)c~u~g~~Veen~he ~o~ 9f-6()OP1D1 ap4middot5S9 am are~

2- c ve~iileJyjtci~ti~~~-p~sitivel~~~JSofampl((Od aIC9~breoricentration Theidatfi)lisf1~p beiw~nfa~al~r8shesmvoivjhgdrilnk -(lovers and the tiq1centqfmiddot a8pound~ re~~ci~d in~ation~ ~ta 9f 19a9(~ ApPendix

if Bgt~ Accor4inSI(~~~se nationaldata inore ~lialhaIfof fjtamp11Ylnj~ied bull middotdrivelillfcraSJi~s~middoto~~mngmiddotbetw~en 9~~~Diand S~ ~Ip~ ejcUbit

_ BAC~lJ~)~rmiddota~r~~~~o~~riie~tB~tweeiimiddotmi~~~t~~~~~~~~~ the~ number nses tomiddot 70cperte~t Moteover the datamiddotshow-thatm smgle

car crasneS occUQlng behvee~ 900 pm and 559-am 70middotpercent of Jat~iyi~jiired~~versexhi~HaAltsat~rab~vfO10~rceJi~2

-_gt_-~ lt~lt~~~ _~-) + )~f~ gt - ~lt _- -- ~_ --~L--

Nighttime Fatal A~tombbUemiddotCrashesmiddot bull Igtatmiddoto~~ightfiriie f~ta1-aut~~obile~rashess~ggelttlia there has

been amiddotaecreaSe~indrUilic(Jtiving inmiddot Massachusei~ssi~~e~1979 For thismeasure~ w~ an8Iyzed th~ frequency of nighiti~e(ffom600 pm

- to 559 am) ra~M a~toriiobne crashes during the 1980s-We also compared the~Umber ofnighttime fat~ crashes wiihthenum~r of

dayti~~ra(a1 cr~h~s(se~~fi~re I and AppendixC) Comp~ng nighttime ~rashes withdaytime crashes coptrols for

overall changes in driving behavior changing road or weather conditions from year to year and ~hanging characteristics of the driving population The extent to which nighttime fatal automobile crashes exceed daytime crashes may be an indicator of alcohol involvement Moreover the extent to which trends in nighttime fatal

2 Facts Insurance Institute for Highway Safety 1990

~

- tmiddot

-~

~ 84 46 8~ middot~8l t 8~ ~ 89 Y~ar (

J bullbull __ ~r

~

SENATE- No 1900

--shy~--~~~~-lt~~~- gt- ~~ ~_-_-~~-~_~- --=shy

~~lt ~ middotmiddot1middot - - shy gtr~-

l bullbull

$--19 -eO~(81 82 shy ~

~ tmiddot

- ~ ~ ~ - t bullbullbullbullbull ~ - shy-_ ----r~~~~

10

-I -

Single CarNighttim~middotFatfCrashes Datil on nighttime singlecarcrashes also sugges~that the~ebas been

a decrease in drunk driving since 1979 For this irieasure we analyzed the Dumber of single car fatal crashes occurring between 900 pm and 559 am during the 1980s (see Figure 2 and Appendix D)

~( r- ~ ~ ~lIlelry olotar Vlllltle -

~~ f~ Poet -~n ~_nd Ove ~O

-FllilreI ~ - --- y - ~

I It w -gt bull

~ ltII bull - ~ s ~ -

jr~-crash~s do noisect~~~ro~middottr~~dsjn daytime fatalcr~~e~ rit~~ alsobe an bull + -indicator of cllilnging rates of alcohol involvem~nt

---- c bullbull

~middotmiddot~~~crmiddotmiddot r

-~~i~tn~~~~rmiddot middot~V) 2t- if bull Nightt~~-f~tal ~r~~es reached an all-time highin(f979 w~th a

t9~~lQF6~9fatal crashes but the numQerQ centr~slies declined dupng ~Ii~~~x-t 4e~~ulet reachin~a ten year1owof)S6 crashes in 19~9~ a 43perqentdrop _ ~r

bull Wille nithttime (fita crashes were declining betwe~ll 1979and -1989t theDumberofdaytimefatal crashes rose 14 percent shy

c

11

bull

bull SINGLECAR NlGHTTlMSiFATAl CRASHES ( 900 pm ~659 middotmiddotmf shy ~gt 1917--1989middotlt

r - ~ r ~ -

-

I

~ - ~ 1101__ ~~~~ _-~~-Lo-~L--~----_I--~~_ ~ lt ~ 78 71 oeo 81shy

~) r-~ pound~~~~~jtS~~~Lt~2middotmiddot ~ gt -~1oJ ~It ~ 0- 12180

~~~~~ [lt20 gt ~ $ipgl~ c81 DJgh~tiple fat craShes froni 336 crashesin 1979~

io~iin1989aj4Z percent decrease bull ~~t lt~ ~~ ~~r ~

shy -- ~FtaI~CJa$hRata~ -- middottmiddotmiddot

~e -i~~ Ji~ ~trol f~r middot~~~gesJn the numbe~ otmiddotdriye~$on the to~ we f caloulatecfthe faUimiddotciash-nue fOt everYIO~OOOlice~ cldVeIs both

(otMttinefattiicrashes and for siDgIe~ nighttim~ fatar~aslies -To~~~hether t~tCbasbein areducjonmfatamplldeseveJi-among--die y(iungest dri~en we- collect~ more ~ltCifiC d~ai forone~ofthe ~urtpga~sect JJ1~8s~~S ~(drunk dyenng -D~ttim6~fi~-c~ -Cr~hes middot-ACCtltJi~g totoe age of the automobU~opera~01linyqlved We e~aminect two agecohorts of drivers driyeri whowere twenty yearsof ageai)d driversmiddotWho were nineteen years-_ofagt and under and thenre~Wed the frequency off~tal cnlshe~~Qry~u~dri~~in 1979 198j~ 19~5gt and 1989 To account Jor poptdatlon c~ges we converted the delta to a rate fOf every 10000 licensed driVers (see Table f)

-

~ i

f J

-

f shy

r- - ~~

-

middott

i-

- - _ _ shy ICe]FDiding -- - shy bull - -shy-

tmiddot ~ r ~ ----- bull

bull ~~h~ ilu~~(of njsbttime fatal c~ashes per te~ tho~and licensed driVers dropped S~_percent from 179 crashes in 1979 to 084 crashes pe~ 10tOQO licensed drivers in 1989~

bull oF

I

4 See

S

bull

ltU~gt

hmiddot~in~tIiemiddotdeC~e

middotmiddotbullmiddotmiddot

~

=~= ~

1990) SENATE - No 1900 13

bull Thef~ticmby~~fnighttimefatal crash~ a~~ng~teenage drivers dropp~d sh~iy(approximaiely 51pecent)middotbetween 1979 and

1983 - -~ ~ ~ ~ - ~ bullbull FrotPmiddotJ979 t~l1~~~tth~middot Dlght~iD~ fa~aI~t~~ ~ait~d~eased 47

pet~ltf()rtag~~middotmiddotand~5~rceQtfoiJw~tyyear oJ4 drivers bullbull - bull middotmiddotmiddot- bulltAmiddot ~-f- t _ bull bullbullbullbull ~- r f bull - bull bull bull

Iii 1919esjliJecarmiddotnightt4D~Jatalciash-rateforevery 10000 ij~~~f4ri~~~~~~middot O9S~by~he en~Q~ ~~~~ t~emiddotiate had fallen JomiddotO4~~per -l6~Jl~~d dJjvers a52 ~rcentdrop ~

j-Ji-~~(gt r middotmiddotmiddotWbt~ebullbullbullStiQ -~

~ r~ (middotmiddotI-_$~~ -~ ~Jr--lt- bull ~~ lt--~ bull

middotThe~lw~s1rrogt~middotineaSuresmiddot of middotdrunkdriVingmiddot bQtb suUest that fthere~~~Jiie~ middotmiddot~libStantial deCr~~~in aicori()lreia~a fatal crashes middottsin~~1~1jr~foiiui~teJY~ ~lt~rge P~ ofjt~~~d~iine~ocCJJt~ ~arly

~Qo Cf the deqMtS e~flyg8ins did not erode over Cii()he i~niaigderJof t~~ ~l~e~eveniJ1ougli~lj~r~ was sigiilil~~( growth

middotmiddotmiddotmiddotmiddot~middotildhe~i1eofdl~ dfiyening populati9nan~ middot~middotmiddotsl~lcentampD in~~e~ in the YIli~b~~1~e)nil~~rlye~~ In f~Ctpre~aiymiddotfig~s suggest that r~o~par~d~to-l98~mgbtti8)e fatal crashes~~ontinue(H~ Qeclirieduring tli~fuSt~itmiddotmpntl)~fJ~ ~ middottmiddotc lts~middotmiddot

Putjai~elti ~~C~ ~at~on~ (~ta indc~lei~~t M~sachusetts had areI~iv~~etyrecotd~tJi~~ was ~ongthebestiriJhecountry A~ong

_ ~~~~ JJor1bull s -1_ bull bull

~e highlyj)(jpul~~d)lidustrial states onlyNew middotJe~ey hadmiddot a lower ni8bttjmeJai~ciaSh t~te than ~~sachusettsmiddot 1 ( ~

middotRegaidles~ oftlieIeiuction in QighttiDicentfitalcrashea among young drivers since 1979~ rialion81 dat~ iridicatethat thedrivers whomiddot are

_ ~ - ~ prohibited~ by l~ (9in purchasin~ or beiJlgpublic~yserved alcohol are still fo~r time~ JtiQr~ likely to be involyed ijla nigltttim~fatal cr~h than the rest of the driving publics WithinMaSsachu~tts in 1979

these operatQrs made-up 10 percent of the dnVirigpopulationmiddot yet accounted or34 percept of nighttimefatal crashes today they make up only 9percent of all drivers yet they produce 30 percent of all nighttime fatal crashes

The states driving population grew by 614138 persons from 1980 through 1989 and over 90 percent of that growth occurred in the

Acxordiog to figures from the Department of die Registry of Motor Vehicles the number of miles driven in MassachUletIs rose from 3S2 billion miles in 1979 to 442 billion in 1989

DrunJc Drillinl Enfoc~mmt in MtlSsachuutu HtIS the Effort Staed Massachusetts Sen Ie Commitl~ on Post Audit and Oversight November 1988 See panicularly discussion on pllges 6 to IC

IRS Facts 989 Insurance Institute for HighVi~y Slfe1y

gt~middot14 [December

80 81 82 83 84 85 Fiscal Year

MA Dp~tllnt of Rftnu 7180 Snet Po- Audit andOftloll 12180

Flaur 3

- -1990] -SENATE -- No 1900 15

-~- ~

SECTION TWO LEGAL AND AD~TRATIVE CHANGESAFFECIING DRUNK OiuVlNG

-~ -DtnuNC THE 1980s- shybull bullbull bullbull _ - I - bullbull)~ ---~ ~ ~~

lbis ~oJtre~i ~vera1 of~~e mainlegaI ilJ1d administrative _stc- ~~~~Jr(~~cri~IC-~~l~~toco~ttQi~~titk yenvi~~ It reviews -shy

~CJ lA~~dnnJtWamp_agetmiddot the developmen ()f re1)abilitation proshy-it~IQ$~aarchang~jff~~g~n~ties andothermiddotCAuiliermeasures

-~ ~~~~~~~~~ flfgt~ gt ~ gt ~~ bull ~ ~-_ J ~~~~Af~~~beight~~~middotpUi)liccon~rn abQutdnWiig and drlVmg wIraquo~h~Vi~~~ppar~n(iD ibe l~te 1970s andcentar)y 19805 iUpro~pted -shy

ii bf~~~middot~pUbli~p~rceivcent to ~ a draU9~~~ incieasevinmiddot al~oholshylt rela~e4 -rl~ ~r~besamongt~ageIn 1972tt~ st~te ~id penDitted

middot[-f~igttlicdjrSt~(fme thetale of-aicohol~~ pCojl~elgbteen Y~arS of age ~~ otmiddot91aef6 Fbe~gtpublic saw ihis change as a stimUluStoatco~ol-retated ~cr~e~lt~~- ~~ lt _

lt middotWlt~t waamp_l~ceiy~tQ be an i~rease m~he incidence ofdrunk - dri~g~paitisUhirlyamongyoung people iii the 18tC(19708 lCd~~ the

_ltf esbtisnment ~of action groups such as Motherst AgaiQst Drunk ~gt- Diwiligt~ADD) and StUdents Xgainst D~ IgtriVingiS4DD)

middotfTIitse aeti~i$f8roupsmiddot~eie- able to gaiD -media~~ntiop iii a ~aDner ~middot~ltmiddot~Jhatdwane4the public middotattentionmiddotto earner efforts to curb drunk

lt driVing gt - - -

~ 8Ymiddot1979~middotd~nightti~emiddotmiddot(atalcrash rate of dnyer~tw~tyyears old anctunderwas~almo$fflve times the rate of that 9fall6ther drivers This trencl~h~roUghlYmiddotmiddot alarmed the public 8ri~ a newly elected

governor had made campaign promise to changetheage at which a person could purchase alcoholic beverages In 1979the drinking age was raised to twenty years old This was the fiiSt ofseveral legisshylative initiativesdesigned to reduce drinking and driving in Massashychusetts The drinking age was once again raised to age twenty-one in 19848

6 Acta of 1972 Chapter ISS Section 2

~ Acts of 1979 Chapter IS Section 6

bull 8 Acts of 1984 Chapter 312fmiddotmiddotmiddotmiddot

16 -(SENATE - No 1m [December

shy 7- - ~

Tb~ Impact of Legal ~bang~ ~gt-~) Throughoutthe i980s the state made s~veralmore legislative

changes t(fre4uc~ th~ incidence otdrunk driving With each of the legislative changes there wasa noticeable decrease iJidmnk driving activity In i982 the state increased penaities for drunk driving including makiilgjall sentences mandatory for a arletyof-offenders10

When the impact of this act appeared to bedeclininJ by 1985 and 1986 the state passed The Safe Roads Act in the later part of 1986

bull For an excellent discussion of past efforts to deal with this problem see Deterring The Drinking Driver H Ross revised and updated edition DC Heath and Company 1984

Acts of 1982 Chapter 373

I bull

middotmiddotmiddotmiddotf i f

p

II

2

~d~e~~~~if~er

beh~viq~~middotl

~fjmiddot~tftJlt

~r i-est~a~Cmiddotmiddot

-

~~ tmiddot ~ gt _

~

gt

arresihi

-~~0--middot~middot

bull ~statisti~y~o

_-0 ~ lt - _ bull ~

~NATE - No 1900 17 - -

~ Thejn~~nto(TheSAre ROad~A~t was to make adjuditati~nfor drunk an~tmiddotmiddotmak(Pe~aIties more middot~~middot~bl f~t as recentmiddot

anaJYl~~~tof~d~8teth~middot~sutanc~tHatjudamp~entwQ~ld~_swift anti~e~ri is th(~O~L~n~~iye Yay t9 b~ve C JJipact ~n p~blic

~~~ ~lt -Yo ~ ~ gt lt~ loJ~~l~~y1 ~~Os~publiccoricepi a~o~tdmiddot(lnkijriyeningalS() affected

themiddotat~fdes~~(ineP911middotmiddot~4 tli~ltc~uits~~t~i)Yete~atlve ~~4~~k~~~tiyen~~ )~i(jii~r ~oi~pletpeni ne~rsfrae~~sUcl1 ~ tbe use

~gmiddotmiddotmiddotoa~ltmiddotbl~Cksmiddot and t~e 4~fjsi()n ~y tlie-Al~o1ionc B~~~tg~~~h~~lComm~iop 0 cuit~ ~~a~ho~~_ inD~ arid re$iauTl1ifS1i~~Qr~bvet middot~coJJrtmiddotmiddotdeciSio~s i~g~ng the liability of i)i~If~(di~ts)or~~iVing dnDJier-s Wh~) w~resugtseqiently jnvolJdin ~ authmof)J1~~t8$lje~ middotht4t ~ siPmcant imp~t on the willingnessmiddotor cortimercW est~blis1iIDentS~ middottomiddot serve aicohol1c ~veragesmiddotmiddot without

~ r~middotmiddotltmiddot ~ t

~-~~~ ~ ~ ~ ~ middotfmiddot

middotbthermiddot~9wlteftn~UreS ApiDStmiddotD~priverS _-~_ ~~ ) p $ ~ p -

Inere~gpubli~concemmiddotapout drunkdriving alsolcentd to a~tronger

fOcuS-bnihe c(ninterii1eaSutes~aicen to limit druDk~diivihg during the - _ HI _ ~~ 1 - bull

1980sinese-ine~i~ tyigti~ally fall into ~hreemyenn categ~ries gt ~~uilkdtiveis olt~~g eVidencemiddot thil~middotth~s-e d~Veis ~

~tuanydrunk ~~rpe~aliiingdrun~ drivers ~ i_ ~)r0 ~

Dr~tirivJDI ~ri~s ~

jUs~ ~~the s~atjsilcsmiddotdein~nstrate a dr~p in drrinkdriyh-tg~actiyity iiid)catethafdrunk drivingarrests fell off dildng the

past d~caa~A~~rdjJigmiddot ~t~~ t~e middotNatioJial HighwayTtaffic-$8fety Admipl~iiati~iJ~middotmiddot~e natiQq~t peak in drunk ~ijyqig eJifdrcement

activityoccurre4 in 19~~when aInt0st 2 iliiJli~ii Pt~ple - approxjmiddotmately ti2 percent~o the nations li~enSeddrivers ~ were

middotarreste4IoJmiddotdrtintltdriving Nevertheless t~e Natio~~rligh~ymiddotSafety Admilfs~ration~stimateS hat even during the p~k years of enforcement police nati6DaIiyapprehendedmiddot only 1out 0(500 people who wercdriving under theinfluence of alcohol atamiddotgiven time

According to infonnatiol1 frtgtm the Office of the Commissioner of Probation enforcement in Massachusetts peaked a little later than

Nichols JL and Ross HL Th~ Eff~elivtM$$ 0 Saneiomor DWI Oftndns paper presented at the International Conference on Alcohol Drugs and Traffic Safety October 1989 Chica80 Illinois

204 CMR 403 adopted December 10 1984

-~

c

--

~

lt

gt ~

- gt

01

19 bull 1 I

39~9i2 - UOS~ 31~1700 40251100

79l

180

SENATE shy No 1900

I ~

~ IS74 - 2S87 I

291C)ooQ - i 36414oo

~

DUlIAreSh ric~sed Driv~n

1990]

Amiddotti~t Rate per ~ ~ l~~DriYers J 1~B7 shy 710 ~

r - 1 ~- ~+ - - - ri

- SO~e ~n~tC P~st- _AUdit and~v~iBht

r-~-middotgt7~ bull ~ ~ ~ 1~ ~ ~

i~gsc~ gt middotOL gt bull bull _ Themes~iratcdncrea$ed263 percent from 1970 to 1984 from

~ shy ~- iai~~lO bull~ariestsptriOOoIicen$eddrivers~~-_ ~ _~ ~~lmiddot ~ ~ gtshy bullbull - __

_ ~ - Be~weiit198()-and 1984 -~he drunk driving arrest raie rose 47 ~ bull ~tf1~t 4 _ bull bull bull - 1

pei~nt ~9ntiiluingt~e~PQsitivetrerid established-d~g the two S p~e~~pifii~yearpeii~ds - shy gt - -~ S~t~84~~arre$ti~t~ h~ d~cIined 24 percent

Tfi~~ii~tff~t~~t-i~OOo licensed 4rivers ini989 (791) is only gt 1pound~nffil8her tbijiit~e i98() rate~_ -T

_ ~middot~--I ~ - 1 _ ~ bull bull bull ~ thF~ ~~~com~tmg explanatio~ for the 24PerCent~c=Crease in drnlt~t~g~Cyentivitysince 1984The t-rstexp~tion

favoi~qbYanu~ber-ofpoJice admiJiistrators is that P8st~nforcement and acfjap2eindQver bChavi()r ~ responsible for the CI~rCaSing rate of aq~$(~~ According to th~ theQry there are f~w~~altestsbecause past enforcement efforts-have successfully deterred d~ driving so

that there are fewer drunk drivers on the roads to apprehend There have not been any local studies to test this explanation~ but few safety experts have been willing to accept this type of anecdotal data on face value

19

1shy

1

1 I

~_ bullbull

~

j -

SENATE ~ No~ 1900 December

Acts of 1961 Chapter 340

14 MGl Chapter 90 Section 24f

1990) 1 lt SENATE ~ Nol900 _

-~~ ~

~i -

PenUllog Drunk Drivers

The Massachusetts system for penalizingdunk drivers includes middotlicense suspensions or revocations fines education and treatment and incarceration The penalties are graduated into three main steps such that theybecome increasingly intensive and they are determined

IS Digesl of Slale Alcohol Highway SafelY Relaled Regulalion eighth edition National Highway Traffic Safety Association

11

- ~

gt SENATE shy No 1900

-

~

[December

~

gt

See Acts of 1982 Chapter 373

c

13

i

- f -- ~ _ gt bull $ -

~i~-~~(~~ ~ ~ ~~ middot(Jey FW4iDgS~ ~ -

- ~_~ _~ ~~ ~ g- ~~ 1__ I bull J

bull ASS1~~~nts-to middotir8t offender programs hv~middot d~crea$ed 20 perceilrsincefis~aLyear 1985i mirroringJh~~~hllng auest tate

bull A~sigriments to the second ~ffenders piogr~~h~lV~deereaSed bull lo _ (

but te-middotdeclirie~has not been as sharp-as fQrthe first offender

(- ~ J)rosr~~ -~ imiddot cmiddotbullbull ~~-- r middotltThe Departme~t of Public 9f Health r~portsltthat while the

frequenCy o~adtni$~i()ns to th~ 14-day trtmen~J)r()gram has middotdecreasedover the last~five years~the demographic cJtaracteristics of fitstand $~cond offender drunk dovers have rem~ined fairly cOnstant includingtheir aver~ge age (approximately 31 ye~s)middot Furthermore inmiddot 1989 when there-were 33709 arrests 2550 drtink drivers (76 percentwent to jail in 1984 when 39912 drunk drivers were arrested 2006 of them were sent to jail (50 percent)

bull bullbull bull

17

~

~ middotc~)middotmiddot ~

~

- gt ~ -ilt c

-

bull gt

accur~~y

SENATE No~ -1900

[December - -1

sECnorit~REE I~~VESIN ~IMPLtEi)CONSENT J - po ~ _ --- ro bull

Int~ s~ctio~iof- themiddotr~o~ve 10~ka M~sa~hu~itS~ experience withf~tiilg for~lPt~xication~ nctthe implied conselli law Wcentthen e~amirttlieinw~~f~e~~~p~6(J~~ li~ on~~ain~s aDdmiddot~nmiddot

Ul~eqr~~ineDt ~syst~in ~a~~()Y~~1detltifY thieemiddotprD~~erils with - ~hcentJa~~s~tnp~~~atiQ~th~q~ngmiddoti~reflS~middotrat~1ui1ohgdet8iJl~s

middotmiddot(middot~~middotfP~~~q~I~~ac~~e~~~t~cen~e~sus~~i~~(~h~~~ ~hp ~emiddotil1e- test and faiJ~middot~iidfinaJI~tl1flack9fjdequat~iecoidsmiddotQllwhether the test was iidfu1nister~accepted middotormiddotfCieetectmiddot gt

~~~~jgtt~middotc~-ltmiddot TJ~(~ic~aeY9f1Ji~Tests ~

~7 bullbullbulll-~ - _ bull bull _ - _

Th~i~ middotis-inc~~~g evidencif that th~ tcentst pr~ltUresin place in yen$~U~~t~~u~e_lair pJa-yXor ttSt)~bjects~ft~ tb~tmiddotth~ infrared

iDaelJll~~ reqqired by the~w are accuratecanci teliable In what is ~~~~pg~I~~~~k c~e-in~~e fi~Ilt4Sat~ 6fJV~~Je~se~ v Andrew l)omiddot~m~ et ~l~Jle Supreme Co~ of ~~wJeJSeyhel4~tpat ~ch tes~~

~~c~~~~~~~~in~ ~gt ~ ~~~~ gt ~ ~ We-areconfiaenn~tcontInti~useoftheb~atfW~rwjllnot lead to unjustmiddot~~~vleti9~-The ~le~~ ~deii~ IS m9tet9ii~1~ive now t~tve(iliat ~e cbilQCe$of-ove~ti~m~tjonmiddot are ~Jaotdnarily ~

sm~l1middotmiddot middot ~fTbe b~ath~~er ismiddotmiddot)i~asSedin -i~ cQinbined pr~~ticalitymiddotmiddotampil4 use~~ssh em OJ he low side 111 a sl8nficant nu~ber ofcases in-order not to overestimate bloodmiddotatcoholin the

middotmiddotgreaies~j)ossibenumoer OfC8Ses~ Wi~e~ ~Vinlted this ~jusifiable middotmiddotiifltgtr4~r to furthermiddot the legislatures wilt ~rid middotmaiDtmefficiency in cmiddot

oiu~ystemQtJustiCeP ~ _ lt1middot~~middotmiddotmiddotmiddot ~t~ ~ ~ -~~ - -- ~

TheVqwnie tilSe is especially valu~bl~ ~ec~use ~lt)stl9f tJte leading expert~lp the ftefd~pPearcentd and teslifiea5othaftheNew Jersey court had tliebeilefjLofan extraordinarily comigtlet~ ~cord uponwhich to base ~its decision The Downie case reduCes concerns about the

and ~reliability of the breath~test middotJlJachines ~urTentIy permitted by MaSsachusetts law ~- ~

The ieliabiii~y of current technology is beco~ngless of an issue Deliberations jQ Massachusetts can ther~fore f~cus on whether the state wants accurate evidence of alcohol impairment and to what extent it wants such evidence not how the test is administered or whether it is accurate

Stall of Nlw Jersey v Andrew Downie e al 569 A2d 242 (NJ 1990) page 251

25

r J I

bull ~J~i~t Ri ~ gt i~mrmiddot1 ~ middoti~~~~ lt~~~~~$ ~~ ~~~a~~mber) (lIe~fet) middotSiilpeDsl~as ~UI~~its~Cn$ 1

- middot~I986~ middot38iO~9middot - 9449 middot2S NA J I middotmiddott~~l~ t~a8J66o c ~~ 13510 36 2608C)middotd

middotmiddotI~~~J~ i~~~~l~ 3~C ~~ml

1middotgt~~atePcrst A~(iifil~CI oVCrsi8h middott cStima te ~ ~ -I

sect~lIlc MA~J5~centlsirY ~pdotor ~Chi~ICS _ ~l I ~~ gt1 i

~ 1

Ij~~~~~~ qgt ~~~ceJ986~middott~ep~rC~iltage of pe~onsr~fus1Dg~o J~e a breath

orJ)loOd~tes( aft~r arrest for drunk dtiving hasJncreased 44 - p~~~n~lrising f~Qll2S percent to 36 ~rc~rttlt

middot ltOut of33imiddot7~ p~~pl~ -yenr~ted -fo~ dru~dri~i~gj~Massachushy 0 middotsettsciuiiJig-198~12279people refused to take abfeath or blood test -and~()nly U~639 actually took a breath ormiddot bl~od test arter ~ JliTestmiddotmiddot -

bull Registry ~tMotor Vehicles and Office of Alcohol Testing reports do not indicate and cannot account for whether or not 9791 of the states 23918 dnitlk driving offendersin- 1989 were offered a breath or blood testand whether they took or refusedihat test

26 SENATE - No 1900 [December

Ie Of the 11639 offenders who consentedmiddott~ a ~~eath or biood test in 1989o~y6998 haeJ theirJicensessus~middotnded under the provi- sionS of~he-~aamimstraiivePerse role

There ~r~-three~~se~o~ pr~bienis jItlieM~~~b~~etts implied consent ~trategy Firsimany offellders are tefusittjto take a test

~ 1~~~~~~~1~~~~ ~t~~ t~1~~4la~e~~e~ fir~t offe~ders ar~~~soretusing~o t~eth~eSF D~ng thepcriodlt

froQll9ampampto-1982)ii~)1mrber of people refuSing teiake the test has rise~ 44 p~r~ent froJl2S percent of those aITested1t) -36 percent of

those arrested gt ~ - bullbull

~ The iniat~forinfor first a~d ~~c~rilaquo(offe~(etproampraritsoffermiddot middot8ddtiQna~vid~Jice- diat the proportion or-clients refUsing middotto take a

~br~at~ tcentsectt~~ter middotmiddot~IT~~tmiddot ~as risen sharply Alice~ t981 andsecond p~ngers il~e)nu~h~orelikeryo refus~ to take~he middottestmiddot During

calepdar ~~rmiddot1989~ percent ~f the second- offendcrs ad~tted to the i4-ltiyiJogran1reported thalt~ey hadiefus~to take abreath

~ bull 0 bull _ bull bull

test c()mp~ to a 33 percent nite for flr$t~offen4eIS ~ The CoDinu)nwealtIj therefore~ must prosecute 8Imost two-thirds

of its drunk drivers without scientific eViden~ - cd imp8irment Mo~eover~J~e pr~s~~i~penalty structure is~i~~ffecii~e~I~ca~mgthe

vast majorityof dninkdrivers to ~onsend~the ~r~th t~~t Second roughly oile-tbird ofthosewhp~taketb-e bteatbmiddot test and

arefoundtohave alllgh blood aicohol conce~tratioiaren~(getting their licenses suspended Of the 33709 peopie ~~lor drunk driving in MaJossachusetts duIjng 1989 onlyOne-third were documentedHo havetaken a blood alcoh()tteStaftetartestOf those who were dricume~ied to have taken the test (rQtU the Commonshywealths testing experience we could estimate tha~IO800 of these individuals would have had a blood level conCentration of at least 010)8 However datfl from the Registry of Mot~~ Vehicles show that only 6998 persons were suspended under the middotmiddotadininistrative per se provisions All 10800 of those who would have tested above 010 percent however would have been subject to an immediate license

Accordinl to data from the Office of Alcohol Testing only 63 percent of those persons tested durin fiscal year 1989 and 62 percent of those per50m tested during fISCal year 1990 recorded test results of

BACs below 010 percent Given these results it is likely that of the 11639 tests administered in 19Z9 10800 would have BACs higher than 010 percent

SENATE - No 1900 27

suspension 81 aiJai~~e~~there is no ~1earieasonfor the states failuftnO suspen(J the licenSes of Offenders Th~third pio~~em W(~hthe statesimplementatlonoftbe implied

~ consent law is~lli~p~o~ie~tr~cor4 ~eep~ng p1cent riu~ber of people who refuse thehteath~iYi~fan(fthosewho takethe test~c~ouni for only10S perCcent~t9(tat~~~~irestslt ~~very ~isl~rbi~g t~~t_ the state ~l~0~acc9ui1~fqr~t~qpL~Opercent ~I itscaSeSltt~~ ~ gt~_

Sorn~Qf-tht(~uiirepq~~d casestn~y~ hav~ bcent~J)middot~p cit~~mstaJices wheii~~~poli~~iriad(~aij~~ts gtwithOut offerbigtbe tesi niis oCcurs

-J ~ r middot~middotmiddot-i~ middotr~ - __ r - - - -

wh~~ ~secteCp~~~ofic~r ~~np( ~v~ljPJ~ t~_ ~it_n~~~~h~ ~esliHr wheremiddot thercent it~no qualifiedbreadttest oper~tor prese1itcFhi~oC(ursmore

middot~~ f ~ ~ bull - bull ~ bullbull J - - bullbull ~ _ j J bull bull _ bull bullbullbullbull shy

fr~qu~ritlYin_~PIaJ~r~pat1ments Tlielaw r~quir~llfa(iirtJl~)vent

thatt~~lis~~J~fu~~~gta-~cp~~ical test- wh~n~qqe~ted tli~ officer L~c Jiii~gfli~treq~~sfsli~lf~piJllediately prepar~ a~ptfenlepqFrof s1ch ~ ~ ~ jrrefusaIarid~ thtfthis r~phifmust bet end()rseltt6y~tliirdpeison ~who -~~-~~bad i~iiesseltl jJ1~refu~Waowever~hetej~nsect Way Q~o~what _-

r ~ tOpartQfJhe 30middotpe~ntojdie unreported casesis1111Ci tQ t~i~Teason~2o lt gtj q ~ltmiddotgtgtigt lt ~-

~ ~i~ SECT10N FO_~ s~~~~~y ANDRECO~~~~J~r~~N~ Cle~rly the G6Q1ni~n~ealths comQ1itDen( ~~diu~~ driving ~iet1tnce hasti~n i~~oya~~~e s~bst~tial~a~~ sfifssf~~Glt~n~es

10 law~ and recentc()urt de~ls10ns aff~tm~ ltabiAty~for d(Unk dnv10g -accid~iltShave h~(f asigl~ant influence on red~~iiig~r11nk4riving as diq iip~reAAe~rl~welif()rcenient The Com~dilw~a~li~s~~uccess is

also ~itti~utahdo strongpuhlic awareness andconce51L~(ltliedeshydine indrinkll)g~~and thechanging demographicsOf (lie dpving popuI~tion middotfmiddot

Alsltgt in spiie6f noticeable decreases in sevetal~n1nk driving countermeasuresduring tlle latter years of the decade state efforts to deter and identify drunk driving during the years 1980~to 1989 far surpassed the efforts made in the preceding decade (see Table V)

9 MGL Chapter 90 Section 24(1)

20 The Commonwealth must address the problem of circumstances arising when there is no witness to a test Just as local fire departments frequently rely on mutual assistance from other communities police departments must make arrangements for mutunl aid cr for centrJlizeltesting of drunk drivers especially in the more rural areas of the state

~

- tmiddot

-~

~ 84 46 8~ middot~8l t 8~ ~ 89 Y~ar (

J bullbull __ ~r

~

SENATE- No 1900

--shy~--~~~~-lt~~~- gt- ~~ ~_-_-~~-~_~- --=shy

~~lt ~ middotmiddot1middot - - shy gtr~-

l bullbull

$--19 -eO~(81 82 shy ~

~ tmiddot

- ~ ~ ~ - t bullbullbullbullbull ~ - shy-_ ----r~~~~

10

-I -

Single CarNighttim~middotFatfCrashes Datil on nighttime singlecarcrashes also sugges~that the~ebas been

a decrease in drunk driving since 1979 For this irieasure we analyzed the Dumber of single car fatal crashes occurring between 900 pm and 559 am during the 1980s (see Figure 2 and Appendix D)

~( r- ~ ~ ~lIlelry olotar Vlllltle -

~~ f~ Poet -~n ~_nd Ove ~O

-FllilreI ~ - --- y - ~

I It w -gt bull

~ ltII bull - ~ s ~ -

jr~-crash~s do noisect~~~ro~middottr~~dsjn daytime fatalcr~~e~ rit~~ alsobe an bull + -indicator of cllilnging rates of alcohol involvem~nt

---- c bullbull

~middotmiddot~~~crmiddotmiddot r

-~~i~tn~~~~rmiddot middot~V) 2t- if bull Nightt~~-f~tal ~r~~es reached an all-time highin(f979 w~th a

t9~~lQF6~9fatal crashes but the numQerQ centr~slies declined dupng ~Ii~~~x-t 4e~~ulet reachin~a ten year1owof)S6 crashes in 19~9~ a 43perqentdrop _ ~r

bull Wille nithttime (fita crashes were declining betwe~ll 1979and -1989t theDumberofdaytimefatal crashes rose 14 percent shy

c

11

bull

bull SINGLECAR NlGHTTlMSiFATAl CRASHES ( 900 pm ~659 middotmiddotmf shy ~gt 1917--1989middotlt

r - ~ r ~ -

-

I

~ - ~ 1101__ ~~~~ _-~~-Lo-~L--~----_I--~~_ ~ lt ~ 78 71 oeo 81shy

~) r-~ pound~~~~~jtS~~~Lt~2middotmiddot ~ gt -~1oJ ~It ~ 0- 12180

~~~~~ [lt20 gt ~ $ipgl~ c81 DJgh~tiple fat craShes froni 336 crashesin 1979~

io~iin1989aj4Z percent decrease bull ~~t lt~ ~~ ~~r ~

shy -- ~FtaI~CJa$hRata~ -- middottmiddotmiddot

~e -i~~ Ji~ ~trol f~r middot~~~gesJn the numbe~ otmiddotdriye~$on the to~ we f caloulatecfthe faUimiddotciash-nue fOt everYIO~OOOlice~ cldVeIs both

(otMttinefattiicrashes and for siDgIe~ nighttim~ fatar~aslies -To~~~hether t~tCbasbein areducjonmfatamplldeseveJi-among--die y(iungest dri~en we- collect~ more ~ltCifiC d~ai forone~ofthe ~urtpga~sect JJ1~8s~~S ~(drunk dyenng -D~ttim6~fi~-c~ -Cr~hes middot-ACCtltJi~g totoe age of the automobU~opera~01linyqlved We e~aminect two agecohorts of drivers driyeri whowere twenty yearsof ageai)d driversmiddotWho were nineteen years-_ofagt and under and thenre~Wed the frequency off~tal cnlshe~~Qry~u~dri~~in 1979 198j~ 19~5gt and 1989 To account Jor poptdatlon c~ges we converted the delta to a rate fOf every 10000 licensed driVers (see Table f)

-

~ i

f J

-

f shy

r- - ~~

-

middott

i-

- - _ _ shy ICe]FDiding -- - shy bull - -shy-

tmiddot ~ r ~ ----- bull

bull ~~h~ ilu~~(of njsbttime fatal c~ashes per te~ tho~and licensed driVers dropped S~_percent from 179 crashes in 1979 to 084 crashes pe~ 10tOQO licensed drivers in 1989~

bull oF

I

4 See

S

bull

ltU~gt

hmiddot~in~tIiemiddotdeC~e

middotmiddotbullmiddotmiddot

~

=~= ~

1990) SENATE - No 1900 13

bull Thef~ticmby~~fnighttimefatal crash~ a~~ng~teenage drivers dropp~d sh~iy(approximaiely 51pecent)middotbetween 1979 and

1983 - -~ ~ ~ ~ - ~ bullbull FrotPmiddotJ979 t~l1~~~tth~middot Dlght~iD~ fa~aI~t~~ ~ait~d~eased 47

pet~ltf()rtag~~middotmiddotand~5~rceQtfoiJw~tyyear oJ4 drivers bullbull - bull middotmiddotmiddot- bulltAmiddot ~-f- t _ bull bullbullbullbull ~- r f bull - bull bull bull

Iii 1919esjliJecarmiddotnightt4D~Jatalciash-rateforevery 10000 ij~~~f4ri~~~~~~middot O9S~by~he en~Q~ ~~~~ t~emiddotiate had fallen JomiddotO4~~per -l6~Jl~~d dJjvers a52 ~rcentdrop ~

j-Ji-~~(gt r middotmiddotmiddotWbt~ebullbullbullStiQ -~

~ r~ (middotmiddotI-_$~~ -~ ~Jr--lt- bull ~~ lt--~ bull

middotThe~lw~s1rrogt~middotineaSuresmiddot of middotdrunkdriVingmiddot bQtb suUest that fthere~~~Jiie~ middotmiddot~libStantial deCr~~~in aicori()lreia~a fatal crashes middottsin~~1~1jr~foiiui~teJY~ ~lt~rge P~ ofjt~~~d~iine~ocCJJt~ ~arly

~Qo Cf the deqMtS e~flyg8ins did not erode over Cii()he i~niaigderJof t~~ ~l~e~eveniJ1ougli~lj~r~ was sigiilil~~( growth

middotmiddotmiddotmiddotmiddot~middotildhe~i1eofdl~ dfiyening populati9nan~ middot~middotmiddotsl~lcentampD in~~e~ in the YIli~b~~1~e)nil~~rlye~~ In f~Ctpre~aiymiddotfig~s suggest that r~o~par~d~to-l98~mgbtti8)e fatal crashes~~ontinue(H~ Qeclirieduring tli~fuSt~itmiddotmpntl)~fJ~ ~ middottmiddotc lts~middotmiddot

Putjai~elti ~~C~ ~at~on~ (~ta indc~lei~~t M~sachusetts had areI~iv~~etyrecotd~tJi~~ was ~ongthebestiriJhecountry A~ong

_ ~~~~ JJor1bull s -1_ bull bull

~e highlyj)(jpul~~d)lidustrial states onlyNew middotJe~ey hadmiddot a lower ni8bttjmeJai~ciaSh t~te than ~~sachusettsmiddot 1 ( ~

middotRegaidles~ oftlieIeiuction in QighttiDicentfitalcrashea among young drivers since 1979~ rialion81 dat~ iridicatethat thedrivers whomiddot are

_ ~ - ~ prohibited~ by l~ (9in purchasin~ or beiJlgpublic~yserved alcohol are still fo~r time~ JtiQr~ likely to be involyed ijla nigltttim~fatal cr~h than the rest of the driving publics WithinMaSsachu~tts in 1979

these operatQrs made-up 10 percent of the dnVirigpopulationmiddot yet accounted or34 percept of nighttimefatal crashes today they make up only 9percent of all drivers yet they produce 30 percent of all nighttime fatal crashes

The states driving population grew by 614138 persons from 1980 through 1989 and over 90 percent of that growth occurred in the

Acxordiog to figures from the Department of die Registry of Motor Vehicles the number of miles driven in MassachUletIs rose from 3S2 billion miles in 1979 to 442 billion in 1989

DrunJc Drillinl Enfoc~mmt in MtlSsachuutu HtIS the Effort Staed Massachusetts Sen Ie Commitl~ on Post Audit and Oversight November 1988 See panicularly discussion on pllges 6 to IC

IRS Facts 989 Insurance Institute for HighVi~y Slfe1y

gt~middot14 [December

80 81 82 83 84 85 Fiscal Year

MA Dp~tllnt of Rftnu 7180 Snet Po- Audit andOftloll 12180

Flaur 3

- -1990] -SENATE -- No 1900 15

-~- ~

SECTION TWO LEGAL AND AD~TRATIVE CHANGESAFFECIING DRUNK OiuVlNG

-~ -DtnuNC THE 1980s- shybull bullbull bullbull _ - I - bullbull)~ ---~ ~ ~~

lbis ~oJtre~i ~vera1 of~~e mainlegaI ilJ1d administrative _stc- ~~~~Jr(~~cri~IC-~~l~~toco~ttQi~~titk yenvi~~ It reviews -shy

~CJ lA~~dnnJtWamp_agetmiddot the developmen ()f re1)abilitation proshy-it~IQ$~aarchang~jff~~g~n~ties andothermiddotCAuiliermeasures

-~ ~~~~~~~~~ flfgt~ gt ~ gt ~~ bull ~ ~-_ J ~~~~Af~~~beight~~~middotpUi)liccon~rn abQutdnWiig and drlVmg wIraquo~h~Vi~~~ppar~n(iD ibe l~te 1970s andcentar)y 19805 iUpro~pted -shy

ii bf~~~middot~pUbli~p~rceivcent to ~ a draU9~~~ incieasevinmiddot al~oholshylt rela~e4 -rl~ ~r~besamongt~ageIn 1972tt~ st~te ~id penDitted

middot[-f~igttlicdjrSt~(fme thetale of-aicohol~~ pCojl~elgbteen Y~arS of age ~~ otmiddot91aef6 Fbe~gtpublic saw ihis change as a stimUluStoatco~ol-retated ~cr~e~lt~~- ~~ lt _

lt middotWlt~t waamp_l~ceiy~tQ be an i~rease m~he incidence ofdrunk - dri~g~paitisUhirlyamongyoung people iii the 18tC(19708 lCd~~ the

_ltf esbtisnment ~of action groups such as Motherst AgaiQst Drunk ~gt- Diwiligt~ADD) and StUdents Xgainst D~ IgtriVingiS4DD)

middotfTIitse aeti~i$f8roupsmiddot~eie- able to gaiD -media~~ntiop iii a ~aDner ~middot~ltmiddot~Jhatdwane4the public middotattentionmiddotto earner efforts to curb drunk

lt driVing gt - - -

~ 8Ymiddot1979~middotd~nightti~emiddotmiddot(atalcrash rate of dnyer~tw~tyyears old anctunderwas~almo$fflve times the rate of that 9fall6ther drivers This trencl~h~roUghlYmiddotmiddot alarmed the public 8ri~ a newly elected

governor had made campaign promise to changetheage at which a person could purchase alcoholic beverages In 1979the drinking age was raised to twenty years old This was the fiiSt ofseveral legisshylative initiativesdesigned to reduce drinking and driving in Massashychusetts The drinking age was once again raised to age twenty-one in 19848

6 Acta of 1972 Chapter ISS Section 2

~ Acts of 1979 Chapter IS Section 6

bull 8 Acts of 1984 Chapter 312fmiddotmiddotmiddotmiddot

16 -(SENATE - No 1m [December

shy 7- - ~

Tb~ Impact of Legal ~bang~ ~gt-~) Throughoutthe i980s the state made s~veralmore legislative

changes t(fre4uc~ th~ incidence otdrunk driving With each of the legislative changes there wasa noticeable decrease iJidmnk driving activity In i982 the state increased penaities for drunk driving including makiilgjall sentences mandatory for a arletyof-offenders10

When the impact of this act appeared to bedeclininJ by 1985 and 1986 the state passed The Safe Roads Act in the later part of 1986

bull For an excellent discussion of past efforts to deal with this problem see Deterring The Drinking Driver H Ross revised and updated edition DC Heath and Company 1984

Acts of 1982 Chapter 373

I bull

middotmiddotmiddotmiddotf i f

p

II

2

~d~e~~~~if~er

beh~viq~~middotl

~fjmiddot~tftJlt

~r i-est~a~Cmiddotmiddot

-

~~ tmiddot ~ gt _

~

gt

arresihi

-~~0--middot~middot

bull ~statisti~y~o

_-0 ~ lt - _ bull ~

~NATE - No 1900 17 - -

~ Thejn~~nto(TheSAre ROad~A~t was to make adjuditati~nfor drunk an~tmiddotmiddotmak(Pe~aIties more middot~~middot~bl f~t as recentmiddot

anaJYl~~~tof~d~8teth~middot~sutanc~tHatjudamp~entwQ~ld~_swift anti~e~ri is th(~O~L~n~~iye Yay t9 b~ve C JJipact ~n p~blic

~~~ ~lt -Yo ~ ~ gt lt~ loJ~~l~~y1 ~~Os~publiccoricepi a~o~tdmiddot(lnkijriyeningalS() affected

themiddotat~fdes~~(ineP911middotmiddot~4 tli~ltc~uits~~t~i)Yete~atlve ~~4~~k~~~tiyen~~ )~i(jii~r ~oi~pletpeni ne~rsfrae~~sUcl1 ~ tbe use

~gmiddotmiddotmiddotoa~ltmiddotbl~Cksmiddot and t~e 4~fjsi()n ~y tlie-Al~o1ionc B~~~tg~~~h~~lComm~iop 0 cuit~ ~~a~ho~~_ inD~ arid re$iauTl1ifS1i~~Qr~bvet middot~coJJrtmiddotmiddotdeciSio~s i~g~ng the liability of i)i~If~(di~ts)or~~iVing dnDJier-s Wh~) w~resugtseqiently jnvolJdin ~ authmof)J1~~t8$lje~ middotht4t ~ siPmcant imp~t on the willingnessmiddotor cortimercW est~blis1iIDentS~ middottomiddot serve aicohol1c ~veragesmiddotmiddot without

~ r~middotmiddotltmiddot ~ t

~-~~~ ~ ~ ~ ~ middotfmiddot

middotbthermiddot~9wlteftn~UreS ApiDStmiddotD~priverS _-~_ ~~ ) p $ ~ p -

Inere~gpubli~concemmiddotapout drunkdriving alsolcentd to a~tronger

fOcuS-bnihe c(ninterii1eaSutes~aicen to limit druDk~diivihg during the - _ HI _ ~~ 1 - bull

1980sinese-ine~i~ tyigti~ally fall into ~hreemyenn categ~ries gt ~~uilkdtiveis olt~~g eVidencemiddot thil~middotth~s-e d~Veis ~

~tuanydrunk ~~rpe~aliiingdrun~ drivers ~ i_ ~)r0 ~

Dr~tirivJDI ~ri~s ~

jUs~ ~~the s~atjsilcsmiddotdein~nstrate a dr~p in drrinkdriyh-tg~actiyity iiid)catethafdrunk drivingarrests fell off dildng the

past d~caa~A~~rdjJigmiddot ~t~~ t~e middotNatioJial HighwayTtaffic-$8fety Admipl~iiati~iJ~middotmiddot~e natiQq~t peak in drunk ~ijyqig eJifdrcement

activityoccurre4 in 19~~when aInt0st 2 iliiJli~ii Pt~ple - approxjmiddotmately ti2 percent~o the nations li~enSeddrivers ~ were

middotarreste4IoJmiddotdrtintltdriving Nevertheless t~e Natio~~rligh~ymiddotSafety Admilfs~ration~stimateS hat even during the p~k years of enforcement police nati6DaIiyapprehendedmiddot only 1out 0(500 people who wercdriving under theinfluence of alcohol atamiddotgiven time

According to infonnatiol1 frtgtm the Office of the Commissioner of Probation enforcement in Massachusetts peaked a little later than

Nichols JL and Ross HL Th~ Eff~elivtM$$ 0 Saneiomor DWI Oftndns paper presented at the International Conference on Alcohol Drugs and Traffic Safety October 1989 Chica80 Illinois

204 CMR 403 adopted December 10 1984

-~

c

--

~

lt

gt ~

- gt

01

19 bull 1 I

39~9i2 - UOS~ 31~1700 40251100

79l

180

SENATE shy No 1900

I ~

~ IS74 - 2S87 I

291C)ooQ - i 36414oo

~

DUlIAreSh ric~sed Driv~n

1990]

Amiddotti~t Rate per ~ ~ l~~DriYers J 1~B7 shy 710 ~

r - 1 ~- ~+ - - - ri

- SO~e ~n~tC P~st- _AUdit and~v~iBht

r-~-middotgt7~ bull ~ ~ ~ 1~ ~ ~

i~gsc~ gt middotOL gt bull bull _ Themes~iratcdncrea$ed263 percent from 1970 to 1984 from

~ shy ~- iai~~lO bull~ariestsptriOOoIicen$eddrivers~~-_ ~ _~ ~~lmiddot ~ ~ gtshy bullbull - __

_ ~ - Be~weiit198()-and 1984 -~he drunk driving arrest raie rose 47 ~ bull ~tf1~t 4 _ bull bull bull - 1

pei~nt ~9ntiiluingt~e~PQsitivetrerid established-d~g the two S p~e~~pifii~yearpeii~ds - shy gt - -~ S~t~84~~arre$ti~t~ h~ d~cIined 24 percent

Tfi~~ii~tff~t~~t-i~OOo licensed 4rivers ini989 (791) is only gt 1pound~nffil8her tbijiit~e i98() rate~_ -T

_ ~middot~--I ~ - 1 _ ~ bull bull bull ~ thF~ ~~~com~tmg explanatio~ for the 24PerCent~c=Crease in drnlt~t~g~Cyentivitysince 1984The t-rstexp~tion

favoi~qbYanu~ber-ofpoJice admiJiistrators is that P8st~nforcement and acfjap2eindQver bChavi()r ~ responsible for the CI~rCaSing rate of aq~$(~~ According to th~ theQry there are f~w~~altestsbecause past enforcement efforts-have successfully deterred d~ driving so

that there are fewer drunk drivers on the roads to apprehend There have not been any local studies to test this explanation~ but few safety experts have been willing to accept this type of anecdotal data on face value

19

1shy

1

1 I

~_ bullbull

~

j -

SENATE ~ No~ 1900 December

Acts of 1961 Chapter 340

14 MGl Chapter 90 Section 24f

1990) 1 lt SENATE ~ Nol900 _

-~~ ~

~i -

PenUllog Drunk Drivers

The Massachusetts system for penalizingdunk drivers includes middotlicense suspensions or revocations fines education and treatment and incarceration The penalties are graduated into three main steps such that theybecome increasingly intensive and they are determined

IS Digesl of Slale Alcohol Highway SafelY Relaled Regulalion eighth edition National Highway Traffic Safety Association

11

- ~

gt SENATE shy No 1900

-

~

[December

~

gt

See Acts of 1982 Chapter 373

c

13

i

- f -- ~ _ gt bull $ -

~i~-~~(~~ ~ ~ ~~ middot(Jey FW4iDgS~ ~ -

- ~_~ _~ ~~ ~ g- ~~ 1__ I bull J

bull ASS1~~~nts-to middotir8t offender programs hv~middot d~crea$ed 20 perceilrsincefis~aLyear 1985i mirroringJh~~~hllng auest tate

bull A~sigriments to the second ~ffenders piogr~~h~lV~deereaSed bull lo _ (

but te-middotdeclirie~has not been as sharp-as fQrthe first offender

(- ~ J)rosr~~ -~ imiddot cmiddotbullbull ~~-- r middotltThe Departme~t of Public 9f Health r~portsltthat while the

frequenCy o~adtni$~i()ns to th~ 14-day trtmen~J)r()gram has middotdecreasedover the last~five years~the demographic cJtaracteristics of fitstand $~cond offender drunk dovers have rem~ined fairly cOnstant includingtheir aver~ge age (approximately 31 ye~s)middot Furthermore inmiddot 1989 when there-were 33709 arrests 2550 drtink drivers (76 percentwent to jail in 1984 when 39912 drunk drivers were arrested 2006 of them were sent to jail (50 percent)

bull bullbull bull

17

~

~ middotc~)middotmiddot ~

~

- gt ~ -ilt c

-

bull gt

accur~~y

SENATE No~ -1900

[December - -1

sECnorit~REE I~~VESIN ~IMPLtEi)CONSENT J - po ~ _ --- ro bull

Int~ s~ctio~iof- themiddotr~o~ve 10~ka M~sa~hu~itS~ experience withf~tiilg for~lPt~xication~ nctthe implied conselli law Wcentthen e~amirttlieinw~~f~e~~~p~6(J~~ li~ on~~ain~s aDdmiddot~nmiddot

Ul~eqr~~ineDt ~syst~in ~a~~()Y~~1detltifY thieemiddotprD~~erils with - ~hcentJa~~s~tnp~~~atiQ~th~q~ngmiddoti~reflS~middotrat~1ui1ohgdet8iJl~s

middotmiddot(middot~~middotfP~~~q~I~~ac~~e~~~t~cen~e~sus~~i~~(~h~~~ ~hp ~emiddotil1e- test and faiJ~middot~iidfinaJI~tl1flack9fjdequat~iecoidsmiddotQllwhether the test was iidfu1nister~accepted middotormiddotfCieetectmiddot gt

~~~~jgtt~middotc~-ltmiddot TJ~(~ic~aeY9f1Ji~Tests ~

~7 bullbullbulll-~ - _ bull bull _ - _

Th~i~ middotis-inc~~~g evidencif that th~ tcentst pr~ltUresin place in yen$~U~~t~~u~e_lair pJa-yXor ttSt)~bjects~ft~ tb~tmiddotth~ infrared

iDaelJll~~ reqqired by the~w are accuratecanci teliable In what is ~~~~pg~I~~~~k c~e-in~~e fi~Ilt4Sat~ 6fJV~~Je~se~ v Andrew l)omiddot~m~ et ~l~Jle Supreme Co~ of ~~wJeJSeyhel4~tpat ~ch tes~~

~~c~~~~~~~~in~ ~gt ~ ~~~~ gt ~ ~ We-areconfiaenn~tcontInti~useoftheb~atfW~rwjllnot lead to unjustmiddot~~~vleti9~-The ~le~~ ~deii~ IS m9tet9ii~1~ive now t~tve(iliat ~e cbilQCe$of-ove~ti~m~tjonmiddot are ~Jaotdnarily ~

sm~l1middotmiddot middot ~fTbe b~ath~~er ismiddotmiddot)i~asSedin -i~ cQinbined pr~~ticalitymiddotmiddotampil4 use~~ssh em OJ he low side 111 a sl8nficant nu~ber ofcases in-order not to overestimate bloodmiddotatcoholin the

middotmiddotgreaies~j)ossibenumoer OfC8Ses~ Wi~e~ ~Vinlted this ~jusifiable middotmiddotiifltgtr4~r to furthermiddot the legislatures wilt ~rid middotmaiDtmefficiency in cmiddot

oiu~ystemQtJustiCeP ~ _ lt1middot~~middotmiddotmiddotmiddot ~t~ ~ ~ -~~ - -- ~

TheVqwnie tilSe is especially valu~bl~ ~ec~use ~lt)stl9f tJte leading expert~lp the ftefd~pPearcentd and teslifiea5othaftheNew Jersey court had tliebeilefjLofan extraordinarily comigtlet~ ~cord uponwhich to base ~its decision The Downie case reduCes concerns about the

and ~reliability of the breath~test middotJlJachines ~urTentIy permitted by MaSsachusetts law ~- ~

The ieliabiii~y of current technology is beco~ngless of an issue Deliberations jQ Massachusetts can ther~fore f~cus on whether the state wants accurate evidence of alcohol impairment and to what extent it wants such evidence not how the test is administered or whether it is accurate

Stall of Nlw Jersey v Andrew Downie e al 569 A2d 242 (NJ 1990) page 251

25

r J I

bull ~J~i~t Ri ~ gt i~mrmiddot1 ~ middoti~~~~ lt~~~~~$ ~~ ~~~a~~mber) (lIe~fet) middotSiilpeDsl~as ~UI~~its~Cn$ 1

- middot~I986~ middot38iO~9middot - 9449 middot2S NA J I middotmiddott~~l~ t~a8J66o c ~~ 13510 36 2608C)middotd

middotmiddotI~~~J~ i~~~~l~ 3~C ~~ml

1middotgt~~atePcrst A~(iifil~CI oVCrsi8h middott cStima te ~ ~ -I

sect~lIlc MA~J5~centlsirY ~pdotor ~Chi~ICS _ ~l I ~~ gt1 i

~ 1

Ij~~~~~~ qgt ~~~ceJ986~middott~ep~rC~iltage of pe~onsr~fus1Dg~o J~e a breath

orJ)loOd~tes( aft~r arrest for drunk dtiving hasJncreased 44 - p~~~n~lrising f~Qll2S percent to 36 ~rc~rttlt

middot ltOut of33imiddot7~ p~~pl~ -yenr~ted -fo~ dru~dri~i~gj~Massachushy 0 middotsettsciuiiJig-198~12279people refused to take abfeath or blood test -and~()nly U~639 actually took a breath ormiddot bl~od test arter ~ JliTestmiddotmiddot -

bull Registry ~tMotor Vehicles and Office of Alcohol Testing reports do not indicate and cannot account for whether or not 9791 of the states 23918 dnitlk driving offendersin- 1989 were offered a breath or blood testand whether they took or refusedihat test

26 SENATE - No 1900 [December

Ie Of the 11639 offenders who consentedmiddott~ a ~~eath or biood test in 1989o~y6998 haeJ theirJicensessus~middotnded under the provi- sionS of~he-~aamimstraiivePerse role

There ~r~-three~~se~o~ pr~bienis jItlieM~~~b~~etts implied consent ~trategy Firsimany offellders are tefusittjto take a test

~ 1~~~~~~~1~~~~ ~t~~ t~1~~4la~e~~e~ fir~t offe~ders ar~~~soretusing~o t~eth~eSF D~ng thepcriodlt

froQll9ampampto-1982)ii~)1mrber of people refuSing teiake the test has rise~ 44 p~r~ent froJl2S percent of those aITested1t) -36 percent of

those arrested gt ~ - bullbull

~ The iniat~forinfor first a~d ~~c~rilaquo(offe~(etproampraritsoffermiddot middot8ddtiQna~vid~Jice- diat the proportion or-clients refUsing middotto take a

~br~at~ tcentsectt~~ter middotmiddot~IT~~tmiddot ~as risen sharply Alice~ t981 andsecond p~ngers il~e)nu~h~orelikeryo refus~ to take~he middottestmiddot During

calepdar ~~rmiddot1989~ percent ~f the second- offendcrs ad~tted to the i4-ltiyiJogran1reported thalt~ey hadiefus~to take abreath

~ bull 0 bull _ bull bull

test c()mp~ to a 33 percent nite for flr$t~offen4eIS ~ The CoDinu)nwealtIj therefore~ must prosecute 8Imost two-thirds

of its drunk drivers without scientific eViden~ - cd imp8irment Mo~eover~J~e pr~s~~i~penalty structure is~i~~ffecii~e~I~ca~mgthe

vast majorityof dninkdrivers to ~onsend~the ~r~th t~~t Second roughly oile-tbird ofthosewhp~taketb-e bteatbmiddot test and

arefoundtohave alllgh blood aicohol conce~tratioiaren~(getting their licenses suspended Of the 33709 peopie ~~lor drunk driving in MaJossachusetts duIjng 1989 onlyOne-third were documentedHo havetaken a blood alcoh()tteStaftetartestOf those who were dricume~ied to have taken the test (rQtU the Commonshywealths testing experience we could estimate tha~IO800 of these individuals would have had a blood level conCentration of at least 010)8 However datfl from the Registry of Mot~~ Vehicles show that only 6998 persons were suspended under the middotmiddotadininistrative per se provisions All 10800 of those who would have tested above 010 percent however would have been subject to an immediate license

Accordinl to data from the Office of Alcohol Testing only 63 percent of those persons tested durin fiscal year 1989 and 62 percent of those per50m tested during fISCal year 1990 recorded test results of

BACs below 010 percent Given these results it is likely that of the 11639 tests administered in 19Z9 10800 would have BACs higher than 010 percent

SENATE - No 1900 27

suspension 81 aiJai~~e~~there is no ~1earieasonfor the states failuftnO suspen(J the licenSes of Offenders Th~third pio~~em W(~hthe statesimplementatlonoftbe implied

~ consent law is~lli~p~o~ie~tr~cor4 ~eep~ng p1cent riu~ber of people who refuse thehteath~iYi~fan(fthosewho takethe test~c~ouni for only10S perCcent~t9(tat~~~~irestslt ~~very ~isl~rbi~g t~~t_ the state ~l~0~acc9ui1~fqr~t~qpL~Opercent ~I itscaSeSltt~~ ~ gt~_

Sorn~Qf-tht(~uiirepq~~d casestn~y~ hav~ bcent~J)middot~p cit~~mstaJices wheii~~~poli~~iriad(~aij~~ts gtwithOut offerbigtbe tesi niis oCcurs

-J ~ r middot~middotmiddot-i~ middotr~ - __ r - - - -

wh~~ ~secteCp~~~ofic~r ~~np( ~v~ljPJ~ t~_ ~it_n~~~~h~ ~esliHr wheremiddot thercent it~no qualifiedbreadttest oper~tor prese1itcFhi~oC(ursmore

middot~~ f ~ ~ bull - bull ~ bullbull J - - bullbull ~ _ j J bull bull _ bull bullbullbullbull shy

fr~qu~ritlYin_~PIaJ~r~pat1ments Tlielaw r~quir~llfa(iirtJl~)vent

thatt~~lis~~J~fu~~~gta-~cp~~ical test- wh~n~qqe~ted tli~ officer L~c Jiii~gfli~treq~~sfsli~lf~piJllediately prepar~ a~ptfenlepqFrof s1ch ~ ~ ~ jrrefusaIarid~ thtfthis r~phifmust bet end()rseltt6y~tliirdpeison ~who -~~-~~bad i~iiesseltl jJ1~refu~Waowever~hetej~nsect Way Q~o~what _-

r ~ tOpartQfJhe 30middotpe~ntojdie unreported casesis1111Ci tQ t~i~Teason~2o lt gtj q ~ltmiddotgtgtigt lt ~-

~ ~i~ SECT10N FO_~ s~~~~~y ANDRECO~~~~J~r~~N~ Cle~rly the G6Q1ni~n~ealths comQ1itDen( ~~diu~~ driving ~iet1tnce hasti~n i~~oya~~~e s~bst~tial~a~~ sfifssf~~Glt~n~es

10 law~ and recentc()urt de~ls10ns aff~tm~ ltabiAty~for d(Unk dnv10g -accid~iltShave h~(f asigl~ant influence on red~~iiig~r11nk4riving as diq iip~reAAe~rl~welif()rcenient The Com~dilw~a~li~s~~uccess is

also ~itti~utahdo strongpuhlic awareness andconce51L~(ltliedeshydine indrinkll)g~~and thechanging demographicsOf (lie dpving popuI~tion middotfmiddot

Alsltgt in spiie6f noticeable decreases in sevetal~n1nk driving countermeasuresduring tlle latter years of the decade state efforts to deter and identify drunk driving during the years 1980~to 1989 far surpassed the efforts made in the preceding decade (see Table V)

9 MGL Chapter 90 Section 24(1)

20 The Commonwealth must address the problem of circumstances arising when there is no witness to a test Just as local fire departments frequently rely on mutual assistance from other communities police departments must make arrangements for mutunl aid cr for centrJlizeltesting of drunk drivers especially in the more rural areas of the state

c

11

bull

bull SINGLECAR NlGHTTlMSiFATAl CRASHES ( 900 pm ~659 middotmiddotmf shy ~gt 1917--1989middotlt

r - ~ r ~ -

-

I

~ - ~ 1101__ ~~~~ _-~~-Lo-~L--~----_I--~~_ ~ lt ~ 78 71 oeo 81shy

~) r-~ pound~~~~~jtS~~~Lt~2middotmiddot ~ gt -~1oJ ~It ~ 0- 12180

~~~~~ [lt20 gt ~ $ipgl~ c81 DJgh~tiple fat craShes froni 336 crashesin 1979~

io~iin1989aj4Z percent decrease bull ~~t lt~ ~~ ~~r ~

shy -- ~FtaI~CJa$hRata~ -- middottmiddotmiddot

~e -i~~ Ji~ ~trol f~r middot~~~gesJn the numbe~ otmiddotdriye~$on the to~ we f caloulatecfthe faUimiddotciash-nue fOt everYIO~OOOlice~ cldVeIs both

(otMttinefattiicrashes and for siDgIe~ nighttim~ fatar~aslies -To~~~hether t~tCbasbein areducjonmfatamplldeseveJi-among--die y(iungest dri~en we- collect~ more ~ltCifiC d~ai forone~ofthe ~urtpga~sect JJ1~8s~~S ~(drunk dyenng -D~ttim6~fi~-c~ -Cr~hes middot-ACCtltJi~g totoe age of the automobU~opera~01linyqlved We e~aminect two agecohorts of drivers driyeri whowere twenty yearsof ageai)d driversmiddotWho were nineteen years-_ofagt and under and thenre~Wed the frequency off~tal cnlshe~~Qry~u~dri~~in 1979 198j~ 19~5gt and 1989 To account Jor poptdatlon c~ges we converted the delta to a rate fOf every 10000 licensed driVers (see Table f)

-

~ i

f J

-

f shy

r- - ~~

-

middott

i-

- - _ _ shy ICe]FDiding -- - shy bull - -shy-

tmiddot ~ r ~ ----- bull

bull ~~h~ ilu~~(of njsbttime fatal c~ashes per te~ tho~and licensed driVers dropped S~_percent from 179 crashes in 1979 to 084 crashes pe~ 10tOQO licensed drivers in 1989~

bull oF

I

4 See

S

bull

ltU~gt

hmiddot~in~tIiemiddotdeC~e

middotmiddotbullmiddotmiddot

~

=~= ~

1990) SENATE - No 1900 13

bull Thef~ticmby~~fnighttimefatal crash~ a~~ng~teenage drivers dropp~d sh~iy(approximaiely 51pecent)middotbetween 1979 and

1983 - -~ ~ ~ ~ - ~ bullbull FrotPmiddotJ979 t~l1~~~tth~middot Dlght~iD~ fa~aI~t~~ ~ait~d~eased 47

pet~ltf()rtag~~middotmiddotand~5~rceQtfoiJw~tyyear oJ4 drivers bullbull - bull middotmiddotmiddot- bulltAmiddot ~-f- t _ bull bullbullbullbull ~- r f bull - bull bull bull

Iii 1919esjliJecarmiddotnightt4D~Jatalciash-rateforevery 10000 ij~~~f4ri~~~~~~middot O9S~by~he en~Q~ ~~~~ t~emiddotiate had fallen JomiddotO4~~per -l6~Jl~~d dJjvers a52 ~rcentdrop ~

j-Ji-~~(gt r middotmiddotmiddotWbt~ebullbullbullStiQ -~

~ r~ (middotmiddotI-_$~~ -~ ~Jr--lt- bull ~~ lt--~ bull

middotThe~lw~s1rrogt~middotineaSuresmiddot of middotdrunkdriVingmiddot bQtb suUest that fthere~~~Jiie~ middotmiddot~libStantial deCr~~~in aicori()lreia~a fatal crashes middottsin~~1~1jr~foiiui~teJY~ ~lt~rge P~ ofjt~~~d~iine~ocCJJt~ ~arly

~Qo Cf the deqMtS e~flyg8ins did not erode over Cii()he i~niaigderJof t~~ ~l~e~eveniJ1ougli~lj~r~ was sigiilil~~( growth

middotmiddotmiddotmiddotmiddot~middotildhe~i1eofdl~ dfiyening populati9nan~ middot~middotmiddotsl~lcentampD in~~e~ in the YIli~b~~1~e)nil~~rlye~~ In f~Ctpre~aiymiddotfig~s suggest that r~o~par~d~to-l98~mgbtti8)e fatal crashes~~ontinue(H~ Qeclirieduring tli~fuSt~itmiddotmpntl)~fJ~ ~ middottmiddotc lts~middotmiddot

Putjai~elti ~~C~ ~at~on~ (~ta indc~lei~~t M~sachusetts had areI~iv~~etyrecotd~tJi~~ was ~ongthebestiriJhecountry A~ong

_ ~~~~ JJor1bull s -1_ bull bull

~e highlyj)(jpul~~d)lidustrial states onlyNew middotJe~ey hadmiddot a lower ni8bttjmeJai~ciaSh t~te than ~~sachusettsmiddot 1 ( ~

middotRegaidles~ oftlieIeiuction in QighttiDicentfitalcrashea among young drivers since 1979~ rialion81 dat~ iridicatethat thedrivers whomiddot are

_ ~ - ~ prohibited~ by l~ (9in purchasin~ or beiJlgpublic~yserved alcohol are still fo~r time~ JtiQr~ likely to be involyed ijla nigltttim~fatal cr~h than the rest of the driving publics WithinMaSsachu~tts in 1979

these operatQrs made-up 10 percent of the dnVirigpopulationmiddot yet accounted or34 percept of nighttimefatal crashes today they make up only 9percent of all drivers yet they produce 30 percent of all nighttime fatal crashes

The states driving population grew by 614138 persons from 1980 through 1989 and over 90 percent of that growth occurred in the

Acxordiog to figures from the Department of die Registry of Motor Vehicles the number of miles driven in MassachUletIs rose from 3S2 billion miles in 1979 to 442 billion in 1989

DrunJc Drillinl Enfoc~mmt in MtlSsachuutu HtIS the Effort Staed Massachusetts Sen Ie Commitl~ on Post Audit and Oversight November 1988 See panicularly discussion on pllges 6 to IC

IRS Facts 989 Insurance Institute for HighVi~y Slfe1y

gt~middot14 [December

80 81 82 83 84 85 Fiscal Year

MA Dp~tllnt of Rftnu 7180 Snet Po- Audit andOftloll 12180

Flaur 3

- -1990] -SENATE -- No 1900 15

-~- ~

SECTION TWO LEGAL AND AD~TRATIVE CHANGESAFFECIING DRUNK OiuVlNG

-~ -DtnuNC THE 1980s- shybull bullbull bullbull _ - I - bullbull)~ ---~ ~ ~~

lbis ~oJtre~i ~vera1 of~~e mainlegaI ilJ1d administrative _stc- ~~~~Jr(~~cri~IC-~~l~~toco~ttQi~~titk yenvi~~ It reviews -shy

~CJ lA~~dnnJtWamp_agetmiddot the developmen ()f re1)abilitation proshy-it~IQ$~aarchang~jff~~g~n~ties andothermiddotCAuiliermeasures

-~ ~~~~~~~~~ flfgt~ gt ~ gt ~~ bull ~ ~-_ J ~~~~Af~~~beight~~~middotpUi)liccon~rn abQutdnWiig and drlVmg wIraquo~h~Vi~~~ppar~n(iD ibe l~te 1970s andcentar)y 19805 iUpro~pted -shy

ii bf~~~middot~pUbli~p~rceivcent to ~ a draU9~~~ incieasevinmiddot al~oholshylt rela~e4 -rl~ ~r~besamongt~ageIn 1972tt~ st~te ~id penDitted

middot[-f~igttlicdjrSt~(fme thetale of-aicohol~~ pCojl~elgbteen Y~arS of age ~~ otmiddot91aef6 Fbe~gtpublic saw ihis change as a stimUluStoatco~ol-retated ~cr~e~lt~~- ~~ lt _

lt middotWlt~t waamp_l~ceiy~tQ be an i~rease m~he incidence ofdrunk - dri~g~paitisUhirlyamongyoung people iii the 18tC(19708 lCd~~ the

_ltf esbtisnment ~of action groups such as Motherst AgaiQst Drunk ~gt- Diwiligt~ADD) and StUdents Xgainst D~ IgtriVingiS4DD)

middotfTIitse aeti~i$f8roupsmiddot~eie- able to gaiD -media~~ntiop iii a ~aDner ~middot~ltmiddot~Jhatdwane4the public middotattentionmiddotto earner efforts to curb drunk

lt driVing gt - - -

~ 8Ymiddot1979~middotd~nightti~emiddotmiddot(atalcrash rate of dnyer~tw~tyyears old anctunderwas~almo$fflve times the rate of that 9fall6ther drivers This trencl~h~roUghlYmiddotmiddot alarmed the public 8ri~ a newly elected

governor had made campaign promise to changetheage at which a person could purchase alcoholic beverages In 1979the drinking age was raised to twenty years old This was the fiiSt ofseveral legisshylative initiativesdesigned to reduce drinking and driving in Massashychusetts The drinking age was once again raised to age twenty-one in 19848

6 Acta of 1972 Chapter ISS Section 2

~ Acts of 1979 Chapter IS Section 6

bull 8 Acts of 1984 Chapter 312fmiddotmiddotmiddotmiddot

16 -(SENATE - No 1m [December

shy 7- - ~

Tb~ Impact of Legal ~bang~ ~gt-~) Throughoutthe i980s the state made s~veralmore legislative

changes t(fre4uc~ th~ incidence otdrunk driving With each of the legislative changes there wasa noticeable decrease iJidmnk driving activity In i982 the state increased penaities for drunk driving including makiilgjall sentences mandatory for a arletyof-offenders10

When the impact of this act appeared to bedeclininJ by 1985 and 1986 the state passed The Safe Roads Act in the later part of 1986

bull For an excellent discussion of past efforts to deal with this problem see Deterring The Drinking Driver H Ross revised and updated edition DC Heath and Company 1984

Acts of 1982 Chapter 373

I bull

middotmiddotmiddotmiddotf i f

p

II

2

~d~e~~~~if~er

beh~viq~~middotl

~fjmiddot~tftJlt

~r i-est~a~Cmiddotmiddot

-

~~ tmiddot ~ gt _

~

gt

arresihi

-~~0--middot~middot

bull ~statisti~y~o

_-0 ~ lt - _ bull ~

~NATE - No 1900 17 - -

~ Thejn~~nto(TheSAre ROad~A~t was to make adjuditati~nfor drunk an~tmiddotmiddotmak(Pe~aIties more middot~~middot~bl f~t as recentmiddot

anaJYl~~~tof~d~8teth~middot~sutanc~tHatjudamp~entwQ~ld~_swift anti~e~ri is th(~O~L~n~~iye Yay t9 b~ve C JJipact ~n p~blic

~~~ ~lt -Yo ~ ~ gt lt~ loJ~~l~~y1 ~~Os~publiccoricepi a~o~tdmiddot(lnkijriyeningalS() affected

themiddotat~fdes~~(ineP911middotmiddot~4 tli~ltc~uits~~t~i)Yete~atlve ~~4~~k~~~tiyen~~ )~i(jii~r ~oi~pletpeni ne~rsfrae~~sUcl1 ~ tbe use

~gmiddotmiddotmiddotoa~ltmiddotbl~Cksmiddot and t~e 4~fjsi()n ~y tlie-Al~o1ionc B~~~tg~~~h~~lComm~iop 0 cuit~ ~~a~ho~~_ inD~ arid re$iauTl1ifS1i~~Qr~bvet middot~coJJrtmiddotmiddotdeciSio~s i~g~ng the liability of i)i~If~(di~ts)or~~iVing dnDJier-s Wh~) w~resugtseqiently jnvolJdin ~ authmof)J1~~t8$lje~ middotht4t ~ siPmcant imp~t on the willingnessmiddotor cortimercW est~blis1iIDentS~ middottomiddot serve aicohol1c ~veragesmiddotmiddot without

~ r~middotmiddotltmiddot ~ t

~-~~~ ~ ~ ~ ~ middotfmiddot

middotbthermiddot~9wlteftn~UreS ApiDStmiddotD~priverS _-~_ ~~ ) p $ ~ p -

Inere~gpubli~concemmiddotapout drunkdriving alsolcentd to a~tronger

fOcuS-bnihe c(ninterii1eaSutes~aicen to limit druDk~diivihg during the - _ HI _ ~~ 1 - bull

1980sinese-ine~i~ tyigti~ally fall into ~hreemyenn categ~ries gt ~~uilkdtiveis olt~~g eVidencemiddot thil~middotth~s-e d~Veis ~

~tuanydrunk ~~rpe~aliiingdrun~ drivers ~ i_ ~)r0 ~

Dr~tirivJDI ~ri~s ~

jUs~ ~~the s~atjsilcsmiddotdein~nstrate a dr~p in drrinkdriyh-tg~actiyity iiid)catethafdrunk drivingarrests fell off dildng the

past d~caa~A~~rdjJigmiddot ~t~~ t~e middotNatioJial HighwayTtaffic-$8fety Admipl~iiati~iJ~middotmiddot~e natiQq~t peak in drunk ~ijyqig eJifdrcement

activityoccurre4 in 19~~when aInt0st 2 iliiJli~ii Pt~ple - approxjmiddotmately ti2 percent~o the nations li~enSeddrivers ~ were

middotarreste4IoJmiddotdrtintltdriving Nevertheless t~e Natio~~rligh~ymiddotSafety Admilfs~ration~stimateS hat even during the p~k years of enforcement police nati6DaIiyapprehendedmiddot only 1out 0(500 people who wercdriving under theinfluence of alcohol atamiddotgiven time

According to infonnatiol1 frtgtm the Office of the Commissioner of Probation enforcement in Massachusetts peaked a little later than

Nichols JL and Ross HL Th~ Eff~elivtM$$ 0 Saneiomor DWI Oftndns paper presented at the International Conference on Alcohol Drugs and Traffic Safety October 1989 Chica80 Illinois

204 CMR 403 adopted December 10 1984

-~

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01

19 bull 1 I

39~9i2 - UOS~ 31~1700 40251100

79l

180

SENATE shy No 1900

I ~

~ IS74 - 2S87 I

291C)ooQ - i 36414oo

~

DUlIAreSh ric~sed Driv~n

1990]

Amiddotti~t Rate per ~ ~ l~~DriYers J 1~B7 shy 710 ~

r - 1 ~- ~+ - - - ri

- SO~e ~n~tC P~st- _AUdit and~v~iBht

r-~-middotgt7~ bull ~ ~ ~ 1~ ~ ~

i~gsc~ gt middotOL gt bull bull _ Themes~iratcdncrea$ed263 percent from 1970 to 1984 from

~ shy ~- iai~~lO bull~ariestsptriOOoIicen$eddrivers~~-_ ~ _~ ~~lmiddot ~ ~ gtshy bullbull - __

_ ~ - Be~weiit198()-and 1984 -~he drunk driving arrest raie rose 47 ~ bull ~tf1~t 4 _ bull bull bull - 1

pei~nt ~9ntiiluingt~e~PQsitivetrerid established-d~g the two S p~e~~pifii~yearpeii~ds - shy gt - -~ S~t~84~~arre$ti~t~ h~ d~cIined 24 percent

Tfi~~ii~tff~t~~t-i~OOo licensed 4rivers ini989 (791) is only gt 1pound~nffil8her tbijiit~e i98() rate~_ -T

_ ~middot~--I ~ - 1 _ ~ bull bull bull ~ thF~ ~~~com~tmg explanatio~ for the 24PerCent~c=Crease in drnlt~t~g~Cyentivitysince 1984The t-rstexp~tion

favoi~qbYanu~ber-ofpoJice admiJiistrators is that P8st~nforcement and acfjap2eindQver bChavi()r ~ responsible for the CI~rCaSing rate of aq~$(~~ According to th~ theQry there are f~w~~altestsbecause past enforcement efforts-have successfully deterred d~ driving so

that there are fewer drunk drivers on the roads to apprehend There have not been any local studies to test this explanation~ but few safety experts have been willing to accept this type of anecdotal data on face value

19

1shy

1

1 I

~_ bullbull

~

j -

SENATE ~ No~ 1900 December

Acts of 1961 Chapter 340

14 MGl Chapter 90 Section 24f

1990) 1 lt SENATE ~ Nol900 _

-~~ ~

~i -

PenUllog Drunk Drivers

The Massachusetts system for penalizingdunk drivers includes middotlicense suspensions or revocations fines education and treatment and incarceration The penalties are graduated into three main steps such that theybecome increasingly intensive and they are determined

IS Digesl of Slale Alcohol Highway SafelY Relaled Regulalion eighth edition National Highway Traffic Safety Association

11

- ~

gt SENATE shy No 1900

-

~

[December

~

gt

See Acts of 1982 Chapter 373

c

13

i

- f -- ~ _ gt bull $ -

~i~-~~(~~ ~ ~ ~~ middot(Jey FW4iDgS~ ~ -

- ~_~ _~ ~~ ~ g- ~~ 1__ I bull J

bull ASS1~~~nts-to middotir8t offender programs hv~middot d~crea$ed 20 perceilrsincefis~aLyear 1985i mirroringJh~~~hllng auest tate

bull A~sigriments to the second ~ffenders piogr~~h~lV~deereaSed bull lo _ (

but te-middotdeclirie~has not been as sharp-as fQrthe first offender

(- ~ J)rosr~~ -~ imiddot cmiddotbullbull ~~-- r middotltThe Departme~t of Public 9f Health r~portsltthat while the

frequenCy o~adtni$~i()ns to th~ 14-day trtmen~J)r()gram has middotdecreasedover the last~five years~the demographic cJtaracteristics of fitstand $~cond offender drunk dovers have rem~ined fairly cOnstant includingtheir aver~ge age (approximately 31 ye~s)middot Furthermore inmiddot 1989 when there-were 33709 arrests 2550 drtink drivers (76 percentwent to jail in 1984 when 39912 drunk drivers were arrested 2006 of them were sent to jail (50 percent)

bull bullbull bull

17

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accur~~y

SENATE No~ -1900

[December - -1

sECnorit~REE I~~VESIN ~IMPLtEi)CONSENT J - po ~ _ --- ro bull

Int~ s~ctio~iof- themiddotr~o~ve 10~ka M~sa~hu~itS~ experience withf~tiilg for~lPt~xication~ nctthe implied conselli law Wcentthen e~amirttlieinw~~f~e~~~p~6(J~~ li~ on~~ain~s aDdmiddot~nmiddot

Ul~eqr~~ineDt ~syst~in ~a~~()Y~~1detltifY thieemiddotprD~~erils with - ~hcentJa~~s~tnp~~~atiQ~th~q~ngmiddoti~reflS~middotrat~1ui1ohgdet8iJl~s

middotmiddot(middot~~middotfP~~~q~I~~ac~~e~~~t~cen~e~sus~~i~~(~h~~~ ~hp ~emiddotil1e- test and faiJ~middot~iidfinaJI~tl1flack9fjdequat~iecoidsmiddotQllwhether the test was iidfu1nister~accepted middotormiddotfCieetectmiddot gt

~~~~jgtt~middotc~-ltmiddot TJ~(~ic~aeY9f1Ji~Tests ~

~7 bullbullbulll-~ - _ bull bull _ - _

Th~i~ middotis-inc~~~g evidencif that th~ tcentst pr~ltUresin place in yen$~U~~t~~u~e_lair pJa-yXor ttSt)~bjects~ft~ tb~tmiddotth~ infrared

iDaelJll~~ reqqired by the~w are accuratecanci teliable In what is ~~~~pg~I~~~~k c~e-in~~e fi~Ilt4Sat~ 6fJV~~Je~se~ v Andrew l)omiddot~m~ et ~l~Jle Supreme Co~ of ~~wJeJSeyhel4~tpat ~ch tes~~

~~c~~~~~~~~in~ ~gt ~ ~~~~ gt ~ ~ We-areconfiaenn~tcontInti~useoftheb~atfW~rwjllnot lead to unjustmiddot~~~vleti9~-The ~le~~ ~deii~ IS m9tet9ii~1~ive now t~tve(iliat ~e cbilQCe$of-ove~ti~m~tjonmiddot are ~Jaotdnarily ~

sm~l1middotmiddot middot ~fTbe b~ath~~er ismiddotmiddot)i~asSedin -i~ cQinbined pr~~ticalitymiddotmiddotampil4 use~~ssh em OJ he low side 111 a sl8nficant nu~ber ofcases in-order not to overestimate bloodmiddotatcoholin the

middotmiddotgreaies~j)ossibenumoer OfC8Ses~ Wi~e~ ~Vinlted this ~jusifiable middotmiddotiifltgtr4~r to furthermiddot the legislatures wilt ~rid middotmaiDtmefficiency in cmiddot

oiu~ystemQtJustiCeP ~ _ lt1middot~~middotmiddotmiddotmiddot ~t~ ~ ~ -~~ - -- ~

TheVqwnie tilSe is especially valu~bl~ ~ec~use ~lt)stl9f tJte leading expert~lp the ftefd~pPearcentd and teslifiea5othaftheNew Jersey court had tliebeilefjLofan extraordinarily comigtlet~ ~cord uponwhich to base ~its decision The Downie case reduCes concerns about the

and ~reliability of the breath~test middotJlJachines ~urTentIy permitted by MaSsachusetts law ~- ~

The ieliabiii~y of current technology is beco~ngless of an issue Deliberations jQ Massachusetts can ther~fore f~cus on whether the state wants accurate evidence of alcohol impairment and to what extent it wants such evidence not how the test is administered or whether it is accurate

Stall of Nlw Jersey v Andrew Downie e al 569 A2d 242 (NJ 1990) page 251

25

r J I

bull ~J~i~t Ri ~ gt i~mrmiddot1 ~ middoti~~~~ lt~~~~~$ ~~ ~~~a~~mber) (lIe~fet) middotSiilpeDsl~as ~UI~~its~Cn$ 1

- middot~I986~ middot38iO~9middot - 9449 middot2S NA J I middotmiddott~~l~ t~a8J66o c ~~ 13510 36 2608C)middotd

middotmiddotI~~~J~ i~~~~l~ 3~C ~~ml

1middotgt~~atePcrst A~(iifil~CI oVCrsi8h middott cStima te ~ ~ -I

sect~lIlc MA~J5~centlsirY ~pdotor ~Chi~ICS _ ~l I ~~ gt1 i

~ 1

Ij~~~~~~ qgt ~~~ceJ986~middott~ep~rC~iltage of pe~onsr~fus1Dg~o J~e a breath

orJ)loOd~tes( aft~r arrest for drunk dtiving hasJncreased 44 - p~~~n~lrising f~Qll2S percent to 36 ~rc~rttlt

middot ltOut of33imiddot7~ p~~pl~ -yenr~ted -fo~ dru~dri~i~gj~Massachushy 0 middotsettsciuiiJig-198~12279people refused to take abfeath or blood test -and~()nly U~639 actually took a breath ormiddot bl~od test arter ~ JliTestmiddotmiddot -

bull Registry ~tMotor Vehicles and Office of Alcohol Testing reports do not indicate and cannot account for whether or not 9791 of the states 23918 dnitlk driving offendersin- 1989 were offered a breath or blood testand whether they took or refusedihat test

26 SENATE - No 1900 [December

Ie Of the 11639 offenders who consentedmiddott~ a ~~eath or biood test in 1989o~y6998 haeJ theirJicensessus~middotnded under the provi- sionS of~he-~aamimstraiivePerse role

There ~r~-three~~se~o~ pr~bienis jItlieM~~~b~~etts implied consent ~trategy Firsimany offellders are tefusittjto take a test

~ 1~~~~~~~1~~~~ ~t~~ t~1~~4la~e~~e~ fir~t offe~ders ar~~~soretusing~o t~eth~eSF D~ng thepcriodlt

froQll9ampampto-1982)ii~)1mrber of people refuSing teiake the test has rise~ 44 p~r~ent froJl2S percent of those aITested1t) -36 percent of

those arrested gt ~ - bullbull

~ The iniat~forinfor first a~d ~~c~rilaquo(offe~(etproampraritsoffermiddot middot8ddtiQna~vid~Jice- diat the proportion or-clients refUsing middotto take a

~br~at~ tcentsectt~~ter middotmiddot~IT~~tmiddot ~as risen sharply Alice~ t981 andsecond p~ngers il~e)nu~h~orelikeryo refus~ to take~he middottestmiddot During

calepdar ~~rmiddot1989~ percent ~f the second- offendcrs ad~tted to the i4-ltiyiJogran1reported thalt~ey hadiefus~to take abreath

~ bull 0 bull _ bull bull

test c()mp~ to a 33 percent nite for flr$t~offen4eIS ~ The CoDinu)nwealtIj therefore~ must prosecute 8Imost two-thirds

of its drunk drivers without scientific eViden~ - cd imp8irment Mo~eover~J~e pr~s~~i~penalty structure is~i~~ffecii~e~I~ca~mgthe

vast majorityof dninkdrivers to ~onsend~the ~r~th t~~t Second roughly oile-tbird ofthosewhp~taketb-e bteatbmiddot test and

arefoundtohave alllgh blood aicohol conce~tratioiaren~(getting their licenses suspended Of the 33709 peopie ~~lor drunk driving in MaJossachusetts duIjng 1989 onlyOne-third were documentedHo havetaken a blood alcoh()tteStaftetartestOf those who were dricume~ied to have taken the test (rQtU the Commonshywealths testing experience we could estimate tha~IO800 of these individuals would have had a blood level conCentration of at least 010)8 However datfl from the Registry of Mot~~ Vehicles show that only 6998 persons were suspended under the middotmiddotadininistrative per se provisions All 10800 of those who would have tested above 010 percent however would have been subject to an immediate license

Accordinl to data from the Office of Alcohol Testing only 63 percent of those persons tested durin fiscal year 1989 and 62 percent of those per50m tested during fISCal year 1990 recorded test results of

BACs below 010 percent Given these results it is likely that of the 11639 tests administered in 19Z9 10800 would have BACs higher than 010 percent

SENATE - No 1900 27

suspension 81 aiJai~~e~~there is no ~1earieasonfor the states failuftnO suspen(J the licenSes of Offenders Th~third pio~~em W(~hthe statesimplementatlonoftbe implied

~ consent law is~lli~p~o~ie~tr~cor4 ~eep~ng p1cent riu~ber of people who refuse thehteath~iYi~fan(fthosewho takethe test~c~ouni for only10S perCcent~t9(tat~~~~irestslt ~~very ~isl~rbi~g t~~t_ the state ~l~0~acc9ui1~fqr~t~qpL~Opercent ~I itscaSeSltt~~ ~ gt~_

Sorn~Qf-tht(~uiirepq~~d casestn~y~ hav~ bcent~J)middot~p cit~~mstaJices wheii~~~poli~~iriad(~aij~~ts gtwithOut offerbigtbe tesi niis oCcurs

-J ~ r middot~middotmiddot-i~ middotr~ - __ r - - - -

wh~~ ~secteCp~~~ofic~r ~~np( ~v~ljPJ~ t~_ ~it_n~~~~h~ ~esliHr wheremiddot thercent it~no qualifiedbreadttest oper~tor prese1itcFhi~oC(ursmore

middot~~ f ~ ~ bull - bull ~ bullbull J - - bullbull ~ _ j J bull bull _ bull bullbullbullbull shy

fr~qu~ritlYin_~PIaJ~r~pat1ments Tlielaw r~quir~llfa(iirtJl~)vent

thatt~~lis~~J~fu~~~gta-~cp~~ical test- wh~n~qqe~ted tli~ officer L~c Jiii~gfli~treq~~sfsli~lf~piJllediately prepar~ a~ptfenlepqFrof s1ch ~ ~ ~ jrrefusaIarid~ thtfthis r~phifmust bet end()rseltt6y~tliirdpeison ~who -~~-~~bad i~iiesseltl jJ1~refu~Waowever~hetej~nsect Way Q~o~what _-

r ~ tOpartQfJhe 30middotpe~ntojdie unreported casesis1111Ci tQ t~i~Teason~2o lt gtj q ~ltmiddotgtgtigt lt ~-

~ ~i~ SECT10N FO_~ s~~~~~y ANDRECO~~~~J~r~~N~ Cle~rly the G6Q1ni~n~ealths comQ1itDen( ~~diu~~ driving ~iet1tnce hasti~n i~~oya~~~e s~bst~tial~a~~ sfifssf~~Glt~n~es

10 law~ and recentc()urt de~ls10ns aff~tm~ ltabiAty~for d(Unk dnv10g -accid~iltShave h~(f asigl~ant influence on red~~iiig~r11nk4riving as diq iip~reAAe~rl~welif()rcenient The Com~dilw~a~li~s~~uccess is

also ~itti~utahdo strongpuhlic awareness andconce51L~(ltliedeshydine indrinkll)g~~and thechanging demographicsOf (lie dpving popuI~tion middotfmiddot

Alsltgt in spiie6f noticeable decreases in sevetal~n1nk driving countermeasuresduring tlle latter years of the decade state efforts to deter and identify drunk driving during the years 1980~to 1989 far surpassed the efforts made in the preceding decade (see Table V)

9 MGL Chapter 90 Section 24(1)

20 The Commonwealth must address the problem of circumstances arising when there is no witness to a test Just as local fire departments frequently rely on mutual assistance from other communities police departments must make arrangements for mutunl aid cr for centrJlizeltesting of drunk drivers especially in the more rural areas of the state

~ i

f J

-

f shy

r- - ~~

-

middott

i-

- - _ _ shy ICe]FDiding -- - shy bull - -shy-

tmiddot ~ r ~ ----- bull

bull ~~h~ ilu~~(of njsbttime fatal c~ashes per te~ tho~and licensed driVers dropped S~_percent from 179 crashes in 1979 to 084 crashes pe~ 10tOQO licensed drivers in 1989~

bull oF

I

4 See

S

bull

ltU~gt

hmiddot~in~tIiemiddotdeC~e

middotmiddotbullmiddotmiddot

~

=~= ~

1990) SENATE - No 1900 13

bull Thef~ticmby~~fnighttimefatal crash~ a~~ng~teenage drivers dropp~d sh~iy(approximaiely 51pecent)middotbetween 1979 and

1983 - -~ ~ ~ ~ - ~ bullbull FrotPmiddotJ979 t~l1~~~tth~middot Dlght~iD~ fa~aI~t~~ ~ait~d~eased 47

pet~ltf()rtag~~middotmiddotand~5~rceQtfoiJw~tyyear oJ4 drivers bullbull - bull middotmiddotmiddot- bulltAmiddot ~-f- t _ bull bullbullbullbull ~- r f bull - bull bull bull

Iii 1919esjliJecarmiddotnightt4D~Jatalciash-rateforevery 10000 ij~~~f4ri~~~~~~middot O9S~by~he en~Q~ ~~~~ t~emiddotiate had fallen JomiddotO4~~per -l6~Jl~~d dJjvers a52 ~rcentdrop ~

j-Ji-~~(gt r middotmiddotmiddotWbt~ebullbullbullStiQ -~

~ r~ (middotmiddotI-_$~~ -~ ~Jr--lt- bull ~~ lt--~ bull

middotThe~lw~s1rrogt~middotineaSuresmiddot of middotdrunkdriVingmiddot bQtb suUest that fthere~~~Jiie~ middotmiddot~libStantial deCr~~~in aicori()lreia~a fatal crashes middottsin~~1~1jr~foiiui~teJY~ ~lt~rge P~ ofjt~~~d~iine~ocCJJt~ ~arly

~Qo Cf the deqMtS e~flyg8ins did not erode over Cii()he i~niaigderJof t~~ ~l~e~eveniJ1ougli~lj~r~ was sigiilil~~( growth

middotmiddotmiddotmiddotmiddot~middotildhe~i1eofdl~ dfiyening populati9nan~ middot~middotmiddotsl~lcentampD in~~e~ in the YIli~b~~1~e)nil~~rlye~~ In f~Ctpre~aiymiddotfig~s suggest that r~o~par~d~to-l98~mgbtti8)e fatal crashes~~ontinue(H~ Qeclirieduring tli~fuSt~itmiddotmpntl)~fJ~ ~ middottmiddotc lts~middotmiddot

Putjai~elti ~~C~ ~at~on~ (~ta indc~lei~~t M~sachusetts had areI~iv~~etyrecotd~tJi~~ was ~ongthebestiriJhecountry A~ong

_ ~~~~ JJor1bull s -1_ bull bull

~e highlyj)(jpul~~d)lidustrial states onlyNew middotJe~ey hadmiddot a lower ni8bttjmeJai~ciaSh t~te than ~~sachusettsmiddot 1 ( ~

middotRegaidles~ oftlieIeiuction in QighttiDicentfitalcrashea among young drivers since 1979~ rialion81 dat~ iridicatethat thedrivers whomiddot are

_ ~ - ~ prohibited~ by l~ (9in purchasin~ or beiJlgpublic~yserved alcohol are still fo~r time~ JtiQr~ likely to be involyed ijla nigltttim~fatal cr~h than the rest of the driving publics WithinMaSsachu~tts in 1979

these operatQrs made-up 10 percent of the dnVirigpopulationmiddot yet accounted or34 percept of nighttimefatal crashes today they make up only 9percent of all drivers yet they produce 30 percent of all nighttime fatal crashes

The states driving population grew by 614138 persons from 1980 through 1989 and over 90 percent of that growth occurred in the

Acxordiog to figures from the Department of die Registry of Motor Vehicles the number of miles driven in MassachUletIs rose from 3S2 billion miles in 1979 to 442 billion in 1989

DrunJc Drillinl Enfoc~mmt in MtlSsachuutu HtIS the Effort Staed Massachusetts Sen Ie Commitl~ on Post Audit and Oversight November 1988 See panicularly discussion on pllges 6 to IC

IRS Facts 989 Insurance Institute for HighVi~y Slfe1y

gt~middot14 [December

80 81 82 83 84 85 Fiscal Year

MA Dp~tllnt of Rftnu 7180 Snet Po- Audit andOftloll 12180

Flaur 3

- -1990] -SENATE -- No 1900 15

-~- ~

SECTION TWO LEGAL AND AD~TRATIVE CHANGESAFFECIING DRUNK OiuVlNG

-~ -DtnuNC THE 1980s- shybull bullbull bullbull _ - I - bullbull)~ ---~ ~ ~~

lbis ~oJtre~i ~vera1 of~~e mainlegaI ilJ1d administrative _stc- ~~~~Jr(~~cri~IC-~~l~~toco~ttQi~~titk yenvi~~ It reviews -shy

~CJ lA~~dnnJtWamp_agetmiddot the developmen ()f re1)abilitation proshy-it~IQ$~aarchang~jff~~g~n~ties andothermiddotCAuiliermeasures

-~ ~~~~~~~~~ flfgt~ gt ~ gt ~~ bull ~ ~-_ J ~~~~Af~~~beight~~~middotpUi)liccon~rn abQutdnWiig and drlVmg wIraquo~h~Vi~~~ppar~n(iD ibe l~te 1970s andcentar)y 19805 iUpro~pted -shy

ii bf~~~middot~pUbli~p~rceivcent to ~ a draU9~~~ incieasevinmiddot al~oholshylt rela~e4 -rl~ ~r~besamongt~ageIn 1972tt~ st~te ~id penDitted

middot[-f~igttlicdjrSt~(fme thetale of-aicohol~~ pCojl~elgbteen Y~arS of age ~~ otmiddot91aef6 Fbe~gtpublic saw ihis change as a stimUluStoatco~ol-retated ~cr~e~lt~~- ~~ lt _

lt middotWlt~t waamp_l~ceiy~tQ be an i~rease m~he incidence ofdrunk - dri~g~paitisUhirlyamongyoung people iii the 18tC(19708 lCd~~ the

_ltf esbtisnment ~of action groups such as Motherst AgaiQst Drunk ~gt- Diwiligt~ADD) and StUdents Xgainst D~ IgtriVingiS4DD)

middotfTIitse aeti~i$f8roupsmiddot~eie- able to gaiD -media~~ntiop iii a ~aDner ~middot~ltmiddot~Jhatdwane4the public middotattentionmiddotto earner efforts to curb drunk

lt driVing gt - - -

~ 8Ymiddot1979~middotd~nightti~emiddotmiddot(atalcrash rate of dnyer~tw~tyyears old anctunderwas~almo$fflve times the rate of that 9fall6ther drivers This trencl~h~roUghlYmiddotmiddot alarmed the public 8ri~ a newly elected

governor had made campaign promise to changetheage at which a person could purchase alcoholic beverages In 1979the drinking age was raised to twenty years old This was the fiiSt ofseveral legisshylative initiativesdesigned to reduce drinking and driving in Massashychusetts The drinking age was once again raised to age twenty-one in 19848

6 Acta of 1972 Chapter ISS Section 2

~ Acts of 1979 Chapter IS Section 6

bull 8 Acts of 1984 Chapter 312fmiddotmiddotmiddotmiddot

16 -(SENATE - No 1m [December

shy 7- - ~

Tb~ Impact of Legal ~bang~ ~gt-~) Throughoutthe i980s the state made s~veralmore legislative

changes t(fre4uc~ th~ incidence otdrunk driving With each of the legislative changes there wasa noticeable decrease iJidmnk driving activity In i982 the state increased penaities for drunk driving including makiilgjall sentences mandatory for a arletyof-offenders10

When the impact of this act appeared to bedeclininJ by 1985 and 1986 the state passed The Safe Roads Act in the later part of 1986

bull For an excellent discussion of past efforts to deal with this problem see Deterring The Drinking Driver H Ross revised and updated edition DC Heath and Company 1984

Acts of 1982 Chapter 373

I bull

middotmiddotmiddotmiddotf i f

p

II

2

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bull ~statisti~y~o

_-0 ~ lt - _ bull ~

~NATE - No 1900 17 - -

~ Thejn~~nto(TheSAre ROad~A~t was to make adjuditati~nfor drunk an~tmiddotmiddotmak(Pe~aIties more middot~~middot~bl f~t as recentmiddot

anaJYl~~~tof~d~8teth~middot~sutanc~tHatjudamp~entwQ~ld~_swift anti~e~ri is th(~O~L~n~~iye Yay t9 b~ve C JJipact ~n p~blic

~~~ ~lt -Yo ~ ~ gt lt~ loJ~~l~~y1 ~~Os~publiccoricepi a~o~tdmiddot(lnkijriyeningalS() affected

themiddotat~fdes~~(ineP911middotmiddot~4 tli~ltc~uits~~t~i)Yete~atlve ~~4~~k~~~tiyen~~ )~i(jii~r ~oi~pletpeni ne~rsfrae~~sUcl1 ~ tbe use

~gmiddotmiddotmiddotoa~ltmiddotbl~Cksmiddot and t~e 4~fjsi()n ~y tlie-Al~o1ionc B~~~tg~~~h~~lComm~iop 0 cuit~ ~~a~ho~~_ inD~ arid re$iauTl1ifS1i~~Qr~bvet middot~coJJrtmiddotmiddotdeciSio~s i~g~ng the liability of i)i~If~(di~ts)or~~iVing dnDJier-s Wh~) w~resugtseqiently jnvolJdin ~ authmof)J1~~t8$lje~ middotht4t ~ siPmcant imp~t on the willingnessmiddotor cortimercW est~blis1iIDentS~ middottomiddot serve aicohol1c ~veragesmiddotmiddot without

~ r~middotmiddotltmiddot ~ t

~-~~~ ~ ~ ~ ~ middotfmiddot

middotbthermiddot~9wlteftn~UreS ApiDStmiddotD~priverS _-~_ ~~ ) p $ ~ p -

Inere~gpubli~concemmiddotapout drunkdriving alsolcentd to a~tronger

fOcuS-bnihe c(ninterii1eaSutes~aicen to limit druDk~diivihg during the - _ HI _ ~~ 1 - bull

1980sinese-ine~i~ tyigti~ally fall into ~hreemyenn categ~ries gt ~~uilkdtiveis olt~~g eVidencemiddot thil~middotth~s-e d~Veis ~

~tuanydrunk ~~rpe~aliiingdrun~ drivers ~ i_ ~)r0 ~

Dr~tirivJDI ~ri~s ~

jUs~ ~~the s~atjsilcsmiddotdein~nstrate a dr~p in drrinkdriyh-tg~actiyity iiid)catethafdrunk drivingarrests fell off dildng the

past d~caa~A~~rdjJigmiddot ~t~~ t~e middotNatioJial HighwayTtaffic-$8fety Admipl~iiati~iJ~middotmiddot~e natiQq~t peak in drunk ~ijyqig eJifdrcement

activityoccurre4 in 19~~when aInt0st 2 iliiJli~ii Pt~ple - approxjmiddotmately ti2 percent~o the nations li~enSeddrivers ~ were

middotarreste4IoJmiddotdrtintltdriving Nevertheless t~e Natio~~rligh~ymiddotSafety Admilfs~ration~stimateS hat even during the p~k years of enforcement police nati6DaIiyapprehendedmiddot only 1out 0(500 people who wercdriving under theinfluence of alcohol atamiddotgiven time

According to infonnatiol1 frtgtm the Office of the Commissioner of Probation enforcement in Massachusetts peaked a little later than

Nichols JL and Ross HL Th~ Eff~elivtM$$ 0 Saneiomor DWI Oftndns paper presented at the International Conference on Alcohol Drugs and Traffic Safety October 1989 Chica80 Illinois

204 CMR 403 adopted December 10 1984

-~

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--

~

lt

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01

19 bull 1 I

39~9i2 - UOS~ 31~1700 40251100

79l

180

SENATE shy No 1900

I ~

~ IS74 - 2S87 I

291C)ooQ - i 36414oo

~

DUlIAreSh ric~sed Driv~n

1990]

Amiddotti~t Rate per ~ ~ l~~DriYers J 1~B7 shy 710 ~

r - 1 ~- ~+ - - - ri

- SO~e ~n~tC P~st- _AUdit and~v~iBht

r-~-middotgt7~ bull ~ ~ ~ 1~ ~ ~

i~gsc~ gt middotOL gt bull bull _ Themes~iratcdncrea$ed263 percent from 1970 to 1984 from

~ shy ~- iai~~lO bull~ariestsptriOOoIicen$eddrivers~~-_ ~ _~ ~~lmiddot ~ ~ gtshy bullbull - __

_ ~ - Be~weiit198()-and 1984 -~he drunk driving arrest raie rose 47 ~ bull ~tf1~t 4 _ bull bull bull - 1

pei~nt ~9ntiiluingt~e~PQsitivetrerid established-d~g the two S p~e~~pifii~yearpeii~ds - shy gt - -~ S~t~84~~arre$ti~t~ h~ d~cIined 24 percent

Tfi~~ii~tff~t~~t-i~OOo licensed 4rivers ini989 (791) is only gt 1pound~nffil8her tbijiit~e i98() rate~_ -T

_ ~middot~--I ~ - 1 _ ~ bull bull bull ~ thF~ ~~~com~tmg explanatio~ for the 24PerCent~c=Crease in drnlt~t~g~Cyentivitysince 1984The t-rstexp~tion

favoi~qbYanu~ber-ofpoJice admiJiistrators is that P8st~nforcement and acfjap2eindQver bChavi()r ~ responsible for the CI~rCaSing rate of aq~$(~~ According to th~ theQry there are f~w~~altestsbecause past enforcement efforts-have successfully deterred d~ driving so

that there are fewer drunk drivers on the roads to apprehend There have not been any local studies to test this explanation~ but few safety experts have been willing to accept this type of anecdotal data on face value

19

1shy

1

1 I

~_ bullbull

~

j -

SENATE ~ No~ 1900 December

Acts of 1961 Chapter 340

14 MGl Chapter 90 Section 24f

1990) 1 lt SENATE ~ Nol900 _

-~~ ~

~i -

PenUllog Drunk Drivers

The Massachusetts system for penalizingdunk drivers includes middotlicense suspensions or revocations fines education and treatment and incarceration The penalties are graduated into three main steps such that theybecome increasingly intensive and they are determined

IS Digesl of Slale Alcohol Highway SafelY Relaled Regulalion eighth edition National Highway Traffic Safety Association

11

- ~

gt SENATE shy No 1900

-

~

[December

~

gt

See Acts of 1982 Chapter 373

c

13

i

- f -- ~ _ gt bull $ -

~i~-~~(~~ ~ ~ ~~ middot(Jey FW4iDgS~ ~ -

- ~_~ _~ ~~ ~ g- ~~ 1__ I bull J

bull ASS1~~~nts-to middotir8t offender programs hv~middot d~crea$ed 20 perceilrsincefis~aLyear 1985i mirroringJh~~~hllng auest tate

bull A~sigriments to the second ~ffenders piogr~~h~lV~deereaSed bull lo _ (

but te-middotdeclirie~has not been as sharp-as fQrthe first offender

(- ~ J)rosr~~ -~ imiddot cmiddotbullbull ~~-- r middotltThe Departme~t of Public 9f Health r~portsltthat while the

frequenCy o~adtni$~i()ns to th~ 14-day trtmen~J)r()gram has middotdecreasedover the last~five years~the demographic cJtaracteristics of fitstand $~cond offender drunk dovers have rem~ined fairly cOnstant includingtheir aver~ge age (approximately 31 ye~s)middot Furthermore inmiddot 1989 when there-were 33709 arrests 2550 drtink drivers (76 percentwent to jail in 1984 when 39912 drunk drivers were arrested 2006 of them were sent to jail (50 percent)

bull bullbull bull

17

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accur~~y

SENATE No~ -1900

[December - -1

sECnorit~REE I~~VESIN ~IMPLtEi)CONSENT J - po ~ _ --- ro bull

Int~ s~ctio~iof- themiddotr~o~ve 10~ka M~sa~hu~itS~ experience withf~tiilg for~lPt~xication~ nctthe implied conselli law Wcentthen e~amirttlieinw~~f~e~~~p~6(J~~ li~ on~~ain~s aDdmiddot~nmiddot

Ul~eqr~~ineDt ~syst~in ~a~~()Y~~1detltifY thieemiddotprD~~erils with - ~hcentJa~~s~tnp~~~atiQ~th~q~ngmiddoti~reflS~middotrat~1ui1ohgdet8iJl~s

middotmiddot(middot~~middotfP~~~q~I~~ac~~e~~~t~cen~e~sus~~i~~(~h~~~ ~hp ~emiddotil1e- test and faiJ~middot~iidfinaJI~tl1flack9fjdequat~iecoidsmiddotQllwhether the test was iidfu1nister~accepted middotormiddotfCieetectmiddot gt

~~~~jgtt~middotc~-ltmiddot TJ~(~ic~aeY9f1Ji~Tests ~

~7 bullbullbulll-~ - _ bull bull _ - _

Th~i~ middotis-inc~~~g evidencif that th~ tcentst pr~ltUresin place in yen$~U~~t~~u~e_lair pJa-yXor ttSt)~bjects~ft~ tb~tmiddotth~ infrared

iDaelJll~~ reqqired by the~w are accuratecanci teliable In what is ~~~~pg~I~~~~k c~e-in~~e fi~Ilt4Sat~ 6fJV~~Je~se~ v Andrew l)omiddot~m~ et ~l~Jle Supreme Co~ of ~~wJeJSeyhel4~tpat ~ch tes~~

~~c~~~~~~~~in~ ~gt ~ ~~~~ gt ~ ~ We-areconfiaenn~tcontInti~useoftheb~atfW~rwjllnot lead to unjustmiddot~~~vleti9~-The ~le~~ ~deii~ IS m9tet9ii~1~ive now t~tve(iliat ~e cbilQCe$of-ove~ti~m~tjonmiddot are ~Jaotdnarily ~

sm~l1middotmiddot middot ~fTbe b~ath~~er ismiddotmiddot)i~asSedin -i~ cQinbined pr~~ticalitymiddotmiddotampil4 use~~ssh em OJ he low side 111 a sl8nficant nu~ber ofcases in-order not to overestimate bloodmiddotatcoholin the

middotmiddotgreaies~j)ossibenumoer OfC8Ses~ Wi~e~ ~Vinlted this ~jusifiable middotmiddotiifltgtr4~r to furthermiddot the legislatures wilt ~rid middotmaiDtmefficiency in cmiddot

oiu~ystemQtJustiCeP ~ _ lt1middot~~middotmiddotmiddotmiddot ~t~ ~ ~ -~~ - -- ~

TheVqwnie tilSe is especially valu~bl~ ~ec~use ~lt)stl9f tJte leading expert~lp the ftefd~pPearcentd and teslifiea5othaftheNew Jersey court had tliebeilefjLofan extraordinarily comigtlet~ ~cord uponwhich to base ~its decision The Downie case reduCes concerns about the

and ~reliability of the breath~test middotJlJachines ~urTentIy permitted by MaSsachusetts law ~- ~

The ieliabiii~y of current technology is beco~ngless of an issue Deliberations jQ Massachusetts can ther~fore f~cus on whether the state wants accurate evidence of alcohol impairment and to what extent it wants such evidence not how the test is administered or whether it is accurate

Stall of Nlw Jersey v Andrew Downie e al 569 A2d 242 (NJ 1990) page 251

25

r J I

bull ~J~i~t Ri ~ gt i~mrmiddot1 ~ middoti~~~~ lt~~~~~$ ~~ ~~~a~~mber) (lIe~fet) middotSiilpeDsl~as ~UI~~its~Cn$ 1

- middot~I986~ middot38iO~9middot - 9449 middot2S NA J I middotmiddott~~l~ t~a8J66o c ~~ 13510 36 2608C)middotd

middotmiddotI~~~J~ i~~~~l~ 3~C ~~ml

1middotgt~~atePcrst A~(iifil~CI oVCrsi8h middott cStima te ~ ~ -I

sect~lIlc MA~J5~centlsirY ~pdotor ~Chi~ICS _ ~l I ~~ gt1 i

~ 1

Ij~~~~~~ qgt ~~~ceJ986~middott~ep~rC~iltage of pe~onsr~fus1Dg~o J~e a breath

orJ)loOd~tes( aft~r arrest for drunk dtiving hasJncreased 44 - p~~~n~lrising f~Qll2S percent to 36 ~rc~rttlt

middot ltOut of33imiddot7~ p~~pl~ -yenr~ted -fo~ dru~dri~i~gj~Massachushy 0 middotsettsciuiiJig-198~12279people refused to take abfeath or blood test -and~()nly U~639 actually took a breath ormiddot bl~od test arter ~ JliTestmiddotmiddot -

bull Registry ~tMotor Vehicles and Office of Alcohol Testing reports do not indicate and cannot account for whether or not 9791 of the states 23918 dnitlk driving offendersin- 1989 were offered a breath or blood testand whether they took or refusedihat test

26 SENATE - No 1900 [December

Ie Of the 11639 offenders who consentedmiddott~ a ~~eath or biood test in 1989o~y6998 haeJ theirJicensessus~middotnded under the provi- sionS of~he-~aamimstraiivePerse role

There ~r~-three~~se~o~ pr~bienis jItlieM~~~b~~etts implied consent ~trategy Firsimany offellders are tefusittjto take a test

~ 1~~~~~~~1~~~~ ~t~~ t~1~~4la~e~~e~ fir~t offe~ders ar~~~soretusing~o t~eth~eSF D~ng thepcriodlt

froQll9ampampto-1982)ii~)1mrber of people refuSing teiake the test has rise~ 44 p~r~ent froJl2S percent of those aITested1t) -36 percent of

those arrested gt ~ - bullbull

~ The iniat~forinfor first a~d ~~c~rilaquo(offe~(etproampraritsoffermiddot middot8ddtiQna~vid~Jice- diat the proportion or-clients refUsing middotto take a

~br~at~ tcentsectt~~ter middotmiddot~IT~~tmiddot ~as risen sharply Alice~ t981 andsecond p~ngers il~e)nu~h~orelikeryo refus~ to take~he middottestmiddot During

calepdar ~~rmiddot1989~ percent ~f the second- offendcrs ad~tted to the i4-ltiyiJogran1reported thalt~ey hadiefus~to take abreath

~ bull 0 bull _ bull bull

test c()mp~ to a 33 percent nite for flr$t~offen4eIS ~ The CoDinu)nwealtIj therefore~ must prosecute 8Imost two-thirds

of its drunk drivers without scientific eViden~ - cd imp8irment Mo~eover~J~e pr~s~~i~penalty structure is~i~~ffecii~e~I~ca~mgthe

vast majorityof dninkdrivers to ~onsend~the ~r~th t~~t Second roughly oile-tbird ofthosewhp~taketb-e bteatbmiddot test and

arefoundtohave alllgh blood aicohol conce~tratioiaren~(getting their licenses suspended Of the 33709 peopie ~~lor drunk driving in MaJossachusetts duIjng 1989 onlyOne-third were documentedHo havetaken a blood alcoh()tteStaftetartestOf those who were dricume~ied to have taken the test (rQtU the Commonshywealths testing experience we could estimate tha~IO800 of these individuals would have had a blood level conCentration of at least 010)8 However datfl from the Registry of Mot~~ Vehicles show that only 6998 persons were suspended under the middotmiddotadininistrative per se provisions All 10800 of those who would have tested above 010 percent however would have been subject to an immediate license

Accordinl to data from the Office of Alcohol Testing only 63 percent of those persons tested durin fiscal year 1989 and 62 percent of those per50m tested during fISCal year 1990 recorded test results of

BACs below 010 percent Given these results it is likely that of the 11639 tests administered in 19Z9 10800 would have BACs higher than 010 percent

SENATE - No 1900 27

suspension 81 aiJai~~e~~there is no ~1earieasonfor the states failuftnO suspen(J the licenSes of Offenders Th~third pio~~em W(~hthe statesimplementatlonoftbe implied

~ consent law is~lli~p~o~ie~tr~cor4 ~eep~ng p1cent riu~ber of people who refuse thehteath~iYi~fan(fthosewho takethe test~c~ouni for only10S perCcent~t9(tat~~~~irestslt ~~very ~isl~rbi~g t~~t_ the state ~l~0~acc9ui1~fqr~t~qpL~Opercent ~I itscaSeSltt~~ ~ gt~_

Sorn~Qf-tht(~uiirepq~~d casestn~y~ hav~ bcent~J)middot~p cit~~mstaJices wheii~~~poli~~iriad(~aij~~ts gtwithOut offerbigtbe tesi niis oCcurs

-J ~ r middot~middotmiddot-i~ middotr~ - __ r - - - -

wh~~ ~secteCp~~~ofic~r ~~np( ~v~ljPJ~ t~_ ~it_n~~~~h~ ~esliHr wheremiddot thercent it~no qualifiedbreadttest oper~tor prese1itcFhi~oC(ursmore

middot~~ f ~ ~ bull - bull ~ bullbull J - - bullbull ~ _ j J bull bull _ bull bullbullbullbull shy

fr~qu~ritlYin_~PIaJ~r~pat1ments Tlielaw r~quir~llfa(iirtJl~)vent

thatt~~lis~~J~fu~~~gta-~cp~~ical test- wh~n~qqe~ted tli~ officer L~c Jiii~gfli~treq~~sfsli~lf~piJllediately prepar~ a~ptfenlepqFrof s1ch ~ ~ ~ jrrefusaIarid~ thtfthis r~phifmust bet end()rseltt6y~tliirdpeison ~who -~~-~~bad i~iiesseltl jJ1~refu~Waowever~hetej~nsect Way Q~o~what _-

r ~ tOpartQfJhe 30middotpe~ntojdie unreported casesis1111Ci tQ t~i~Teason~2o lt gtj q ~ltmiddotgtgtigt lt ~-

~ ~i~ SECT10N FO_~ s~~~~~y ANDRECO~~~~J~r~~N~ Cle~rly the G6Q1ni~n~ealths comQ1itDen( ~~diu~~ driving ~iet1tnce hasti~n i~~oya~~~e s~bst~tial~a~~ sfifssf~~Glt~n~es

10 law~ and recentc()urt de~ls10ns aff~tm~ ltabiAty~for d(Unk dnv10g -accid~iltShave h~(f asigl~ant influence on red~~iiig~r11nk4riving as diq iip~reAAe~rl~welif()rcenient The Com~dilw~a~li~s~~uccess is

also ~itti~utahdo strongpuhlic awareness andconce51L~(ltliedeshydine indrinkll)g~~and thechanging demographicsOf (lie dpving popuI~tion middotfmiddot

Alsltgt in spiie6f noticeable decreases in sevetal~n1nk driving countermeasuresduring tlle latter years of the decade state efforts to deter and identify drunk driving during the years 1980~to 1989 far surpassed the efforts made in the preceding decade (see Table V)

9 MGL Chapter 90 Section 24(1)

20 The Commonwealth must address the problem of circumstances arising when there is no witness to a test Just as local fire departments frequently rely on mutual assistance from other communities police departments must make arrangements for mutunl aid cr for centrJlizeltesting of drunk drivers especially in the more rural areas of the state

I

4 See

S

bull

ltU~gt

hmiddot~in~tIiemiddotdeC~e

middotmiddotbullmiddotmiddot

~

=~= ~

1990) SENATE - No 1900 13

bull Thef~ticmby~~fnighttimefatal crash~ a~~ng~teenage drivers dropp~d sh~iy(approximaiely 51pecent)middotbetween 1979 and

1983 - -~ ~ ~ ~ - ~ bullbull FrotPmiddotJ979 t~l1~~~tth~middot Dlght~iD~ fa~aI~t~~ ~ait~d~eased 47

pet~ltf()rtag~~middotmiddotand~5~rceQtfoiJw~tyyear oJ4 drivers bullbull - bull middotmiddotmiddot- bulltAmiddot ~-f- t _ bull bullbullbullbull ~- r f bull - bull bull bull

Iii 1919esjliJecarmiddotnightt4D~Jatalciash-rateforevery 10000 ij~~~f4ri~~~~~~middot O9S~by~he en~Q~ ~~~~ t~emiddotiate had fallen JomiddotO4~~per -l6~Jl~~d dJjvers a52 ~rcentdrop ~

j-Ji-~~(gt r middotmiddotmiddotWbt~ebullbullbullStiQ -~

~ r~ (middotmiddotI-_$~~ -~ ~Jr--lt- bull ~~ lt--~ bull

middotThe~lw~s1rrogt~middotineaSuresmiddot of middotdrunkdriVingmiddot bQtb suUest that fthere~~~Jiie~ middotmiddot~libStantial deCr~~~in aicori()lreia~a fatal crashes middottsin~~1~1jr~foiiui~teJY~ ~lt~rge P~ ofjt~~~d~iine~ocCJJt~ ~arly

~Qo Cf the deqMtS e~flyg8ins did not erode over Cii()he i~niaigderJof t~~ ~l~e~eveniJ1ougli~lj~r~ was sigiilil~~( growth

middotmiddotmiddotmiddotmiddot~middotildhe~i1eofdl~ dfiyening populati9nan~ middot~middotmiddotsl~lcentampD in~~e~ in the YIli~b~~1~e)nil~~rlye~~ In f~Ctpre~aiymiddotfig~s suggest that r~o~par~d~to-l98~mgbtti8)e fatal crashes~~ontinue(H~ Qeclirieduring tli~fuSt~itmiddotmpntl)~fJ~ ~ middottmiddotc lts~middotmiddot

Putjai~elti ~~C~ ~at~on~ (~ta indc~lei~~t M~sachusetts had areI~iv~~etyrecotd~tJi~~ was ~ongthebestiriJhecountry A~ong

_ ~~~~ JJor1bull s -1_ bull bull

~e highlyj)(jpul~~d)lidustrial states onlyNew middotJe~ey hadmiddot a lower ni8bttjmeJai~ciaSh t~te than ~~sachusettsmiddot 1 ( ~

middotRegaidles~ oftlieIeiuction in QighttiDicentfitalcrashea among young drivers since 1979~ rialion81 dat~ iridicatethat thedrivers whomiddot are

_ ~ - ~ prohibited~ by l~ (9in purchasin~ or beiJlgpublic~yserved alcohol are still fo~r time~ JtiQr~ likely to be involyed ijla nigltttim~fatal cr~h than the rest of the driving publics WithinMaSsachu~tts in 1979

these operatQrs made-up 10 percent of the dnVirigpopulationmiddot yet accounted or34 percept of nighttimefatal crashes today they make up only 9percent of all drivers yet they produce 30 percent of all nighttime fatal crashes

The states driving population grew by 614138 persons from 1980 through 1989 and over 90 percent of that growth occurred in the

Acxordiog to figures from the Department of die Registry of Motor Vehicles the number of miles driven in MassachUletIs rose from 3S2 billion miles in 1979 to 442 billion in 1989

DrunJc Drillinl Enfoc~mmt in MtlSsachuutu HtIS the Effort Staed Massachusetts Sen Ie Commitl~ on Post Audit and Oversight November 1988 See panicularly discussion on pllges 6 to IC

IRS Facts 989 Insurance Institute for HighVi~y Slfe1y

gt~middot14 [December

80 81 82 83 84 85 Fiscal Year

MA Dp~tllnt of Rftnu 7180 Snet Po- Audit andOftloll 12180

Flaur 3

- -1990] -SENATE -- No 1900 15

-~- ~

SECTION TWO LEGAL AND AD~TRATIVE CHANGESAFFECIING DRUNK OiuVlNG

-~ -DtnuNC THE 1980s- shybull bullbull bullbull _ - I - bullbull)~ ---~ ~ ~~

lbis ~oJtre~i ~vera1 of~~e mainlegaI ilJ1d administrative _stc- ~~~~Jr(~~cri~IC-~~l~~toco~ttQi~~titk yenvi~~ It reviews -shy

~CJ lA~~dnnJtWamp_agetmiddot the developmen ()f re1)abilitation proshy-it~IQ$~aarchang~jff~~g~n~ties andothermiddotCAuiliermeasures

-~ ~~~~~~~~~ flfgt~ gt ~ gt ~~ bull ~ ~-_ J ~~~~Af~~~beight~~~middotpUi)liccon~rn abQutdnWiig and drlVmg wIraquo~h~Vi~~~ppar~n(iD ibe l~te 1970s andcentar)y 19805 iUpro~pted -shy

ii bf~~~middot~pUbli~p~rceivcent to ~ a draU9~~~ incieasevinmiddot al~oholshylt rela~e4 -rl~ ~r~besamongt~ageIn 1972tt~ st~te ~id penDitted

middot[-f~igttlicdjrSt~(fme thetale of-aicohol~~ pCojl~elgbteen Y~arS of age ~~ otmiddot91aef6 Fbe~gtpublic saw ihis change as a stimUluStoatco~ol-retated ~cr~e~lt~~- ~~ lt _

lt middotWlt~t waamp_l~ceiy~tQ be an i~rease m~he incidence ofdrunk - dri~g~paitisUhirlyamongyoung people iii the 18tC(19708 lCd~~ the

_ltf esbtisnment ~of action groups such as Motherst AgaiQst Drunk ~gt- Diwiligt~ADD) and StUdents Xgainst D~ IgtriVingiS4DD)

middotfTIitse aeti~i$f8roupsmiddot~eie- able to gaiD -media~~ntiop iii a ~aDner ~middot~ltmiddot~Jhatdwane4the public middotattentionmiddotto earner efforts to curb drunk

lt driVing gt - - -

~ 8Ymiddot1979~middotd~nightti~emiddotmiddot(atalcrash rate of dnyer~tw~tyyears old anctunderwas~almo$fflve times the rate of that 9fall6ther drivers This trencl~h~roUghlYmiddotmiddot alarmed the public 8ri~ a newly elected

governor had made campaign promise to changetheage at which a person could purchase alcoholic beverages In 1979the drinking age was raised to twenty years old This was the fiiSt ofseveral legisshylative initiativesdesigned to reduce drinking and driving in Massashychusetts The drinking age was once again raised to age twenty-one in 19848

6 Acta of 1972 Chapter ISS Section 2

~ Acts of 1979 Chapter IS Section 6

bull 8 Acts of 1984 Chapter 312fmiddotmiddotmiddotmiddot

16 -(SENATE - No 1m [December

shy 7- - ~

Tb~ Impact of Legal ~bang~ ~gt-~) Throughoutthe i980s the state made s~veralmore legislative

changes t(fre4uc~ th~ incidence otdrunk driving With each of the legislative changes there wasa noticeable decrease iJidmnk driving activity In i982 the state increased penaities for drunk driving including makiilgjall sentences mandatory for a arletyof-offenders10

When the impact of this act appeared to bedeclininJ by 1985 and 1986 the state passed The Safe Roads Act in the later part of 1986

bull For an excellent discussion of past efforts to deal with this problem see Deterring The Drinking Driver H Ross revised and updated edition DC Heath and Company 1984

Acts of 1982 Chapter 373

I bull

middotmiddotmiddotmiddotf i f

p

II

2

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bull ~statisti~y~o

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~NATE - No 1900 17 - -

~ Thejn~~nto(TheSAre ROad~A~t was to make adjuditati~nfor drunk an~tmiddotmiddotmak(Pe~aIties more middot~~middot~bl f~t as recentmiddot

anaJYl~~~tof~d~8teth~middot~sutanc~tHatjudamp~entwQ~ld~_swift anti~e~ri is th(~O~L~n~~iye Yay t9 b~ve C JJipact ~n p~blic

~~~ ~lt -Yo ~ ~ gt lt~ loJ~~l~~y1 ~~Os~publiccoricepi a~o~tdmiddot(lnkijriyeningalS() affected

themiddotat~fdes~~(ineP911middotmiddot~4 tli~ltc~uits~~t~i)Yete~atlve ~~4~~k~~~tiyen~~ )~i(jii~r ~oi~pletpeni ne~rsfrae~~sUcl1 ~ tbe use

~gmiddotmiddotmiddotoa~ltmiddotbl~Cksmiddot and t~e 4~fjsi()n ~y tlie-Al~o1ionc B~~~tg~~~h~~lComm~iop 0 cuit~ ~~a~ho~~_ inD~ arid re$iauTl1ifS1i~~Qr~bvet middot~coJJrtmiddotmiddotdeciSio~s i~g~ng the liability of i)i~If~(di~ts)or~~iVing dnDJier-s Wh~) w~resugtseqiently jnvolJdin ~ authmof)J1~~t8$lje~ middotht4t ~ siPmcant imp~t on the willingnessmiddotor cortimercW est~blis1iIDentS~ middottomiddot serve aicohol1c ~veragesmiddotmiddot without

~ r~middotmiddotltmiddot ~ t

~-~~~ ~ ~ ~ ~ middotfmiddot

middotbthermiddot~9wlteftn~UreS ApiDStmiddotD~priverS _-~_ ~~ ) p $ ~ p -

Inere~gpubli~concemmiddotapout drunkdriving alsolcentd to a~tronger

fOcuS-bnihe c(ninterii1eaSutes~aicen to limit druDk~diivihg during the - _ HI _ ~~ 1 - bull

1980sinese-ine~i~ tyigti~ally fall into ~hreemyenn categ~ries gt ~~uilkdtiveis olt~~g eVidencemiddot thil~middotth~s-e d~Veis ~

~tuanydrunk ~~rpe~aliiingdrun~ drivers ~ i_ ~)r0 ~

Dr~tirivJDI ~ri~s ~

jUs~ ~~the s~atjsilcsmiddotdein~nstrate a dr~p in drrinkdriyh-tg~actiyity iiid)catethafdrunk drivingarrests fell off dildng the

past d~caa~A~~rdjJigmiddot ~t~~ t~e middotNatioJial HighwayTtaffic-$8fety Admipl~iiati~iJ~middotmiddot~e natiQq~t peak in drunk ~ijyqig eJifdrcement

activityoccurre4 in 19~~when aInt0st 2 iliiJli~ii Pt~ple - approxjmiddotmately ti2 percent~o the nations li~enSeddrivers ~ were

middotarreste4IoJmiddotdrtintltdriving Nevertheless t~e Natio~~rligh~ymiddotSafety Admilfs~ration~stimateS hat even during the p~k years of enforcement police nati6DaIiyapprehendedmiddot only 1out 0(500 people who wercdriving under theinfluence of alcohol atamiddotgiven time

According to infonnatiol1 frtgtm the Office of the Commissioner of Probation enforcement in Massachusetts peaked a little later than

Nichols JL and Ross HL Th~ Eff~elivtM$$ 0 Saneiomor DWI Oftndns paper presented at the International Conference on Alcohol Drugs and Traffic Safety October 1989 Chica80 Illinois

204 CMR 403 adopted December 10 1984

-~

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19 bull 1 I

39~9i2 - UOS~ 31~1700 40251100

79l

180

SENATE shy No 1900

I ~

~ IS74 - 2S87 I

291C)ooQ - i 36414oo

~

DUlIAreSh ric~sed Driv~n

1990]

Amiddotti~t Rate per ~ ~ l~~DriYers J 1~B7 shy 710 ~

r - 1 ~- ~+ - - - ri

- SO~e ~n~tC P~st- _AUdit and~v~iBht

r-~-middotgt7~ bull ~ ~ ~ 1~ ~ ~

i~gsc~ gt middotOL gt bull bull _ Themes~iratcdncrea$ed263 percent from 1970 to 1984 from

~ shy ~- iai~~lO bull~ariestsptriOOoIicen$eddrivers~~-_ ~ _~ ~~lmiddot ~ ~ gtshy bullbull - __

_ ~ - Be~weiit198()-and 1984 -~he drunk driving arrest raie rose 47 ~ bull ~tf1~t 4 _ bull bull bull - 1

pei~nt ~9ntiiluingt~e~PQsitivetrerid established-d~g the two S p~e~~pifii~yearpeii~ds - shy gt - -~ S~t~84~~arre$ti~t~ h~ d~cIined 24 percent

Tfi~~ii~tff~t~~t-i~OOo licensed 4rivers ini989 (791) is only gt 1pound~nffil8her tbijiit~e i98() rate~_ -T

_ ~middot~--I ~ - 1 _ ~ bull bull bull ~ thF~ ~~~com~tmg explanatio~ for the 24PerCent~c=Crease in drnlt~t~g~Cyentivitysince 1984The t-rstexp~tion

favoi~qbYanu~ber-ofpoJice admiJiistrators is that P8st~nforcement and acfjap2eindQver bChavi()r ~ responsible for the CI~rCaSing rate of aq~$(~~ According to th~ theQry there are f~w~~altestsbecause past enforcement efforts-have successfully deterred d~ driving so

that there are fewer drunk drivers on the roads to apprehend There have not been any local studies to test this explanation~ but few safety experts have been willing to accept this type of anecdotal data on face value

19

1shy

1

1 I

~_ bullbull

~

j -

SENATE ~ No~ 1900 December

Acts of 1961 Chapter 340

14 MGl Chapter 90 Section 24f

1990) 1 lt SENATE ~ Nol900 _

-~~ ~

~i -

PenUllog Drunk Drivers

The Massachusetts system for penalizingdunk drivers includes middotlicense suspensions or revocations fines education and treatment and incarceration The penalties are graduated into three main steps such that theybecome increasingly intensive and they are determined

IS Digesl of Slale Alcohol Highway SafelY Relaled Regulalion eighth edition National Highway Traffic Safety Association

11

- ~

gt SENATE shy No 1900

-

~

[December

~

gt

See Acts of 1982 Chapter 373

c

13

i

- f -- ~ _ gt bull $ -

~i~-~~(~~ ~ ~ ~~ middot(Jey FW4iDgS~ ~ -

- ~_~ _~ ~~ ~ g- ~~ 1__ I bull J

bull ASS1~~~nts-to middotir8t offender programs hv~middot d~crea$ed 20 perceilrsincefis~aLyear 1985i mirroringJh~~~hllng auest tate

bull A~sigriments to the second ~ffenders piogr~~h~lV~deereaSed bull lo _ (

but te-middotdeclirie~has not been as sharp-as fQrthe first offender

(- ~ J)rosr~~ -~ imiddot cmiddotbullbull ~~-- r middotltThe Departme~t of Public 9f Health r~portsltthat while the

frequenCy o~adtni$~i()ns to th~ 14-day trtmen~J)r()gram has middotdecreasedover the last~five years~the demographic cJtaracteristics of fitstand $~cond offender drunk dovers have rem~ined fairly cOnstant includingtheir aver~ge age (approximately 31 ye~s)middot Furthermore inmiddot 1989 when there-were 33709 arrests 2550 drtink drivers (76 percentwent to jail in 1984 when 39912 drunk drivers were arrested 2006 of them were sent to jail (50 percent)

bull bullbull bull

17

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accur~~y

SENATE No~ -1900

[December - -1

sECnorit~REE I~~VESIN ~IMPLtEi)CONSENT J - po ~ _ --- ro bull

Int~ s~ctio~iof- themiddotr~o~ve 10~ka M~sa~hu~itS~ experience withf~tiilg for~lPt~xication~ nctthe implied conselli law Wcentthen e~amirttlieinw~~f~e~~~p~6(J~~ li~ on~~ain~s aDdmiddot~nmiddot

Ul~eqr~~ineDt ~syst~in ~a~~()Y~~1detltifY thieemiddotprD~~erils with - ~hcentJa~~s~tnp~~~atiQ~th~q~ngmiddoti~reflS~middotrat~1ui1ohgdet8iJl~s

middotmiddot(middot~~middotfP~~~q~I~~ac~~e~~~t~cen~e~sus~~i~~(~h~~~ ~hp ~emiddotil1e- test and faiJ~middot~iidfinaJI~tl1flack9fjdequat~iecoidsmiddotQllwhether the test was iidfu1nister~accepted middotormiddotfCieetectmiddot gt

~~~~jgtt~middotc~-ltmiddot TJ~(~ic~aeY9f1Ji~Tests ~

~7 bullbullbulll-~ - _ bull bull _ - _

Th~i~ middotis-inc~~~g evidencif that th~ tcentst pr~ltUresin place in yen$~U~~t~~u~e_lair pJa-yXor ttSt)~bjects~ft~ tb~tmiddotth~ infrared

iDaelJll~~ reqqired by the~w are accuratecanci teliable In what is ~~~~pg~I~~~~k c~e-in~~e fi~Ilt4Sat~ 6fJV~~Je~se~ v Andrew l)omiddot~m~ et ~l~Jle Supreme Co~ of ~~wJeJSeyhel4~tpat ~ch tes~~

~~c~~~~~~~~in~ ~gt ~ ~~~~ gt ~ ~ We-areconfiaenn~tcontInti~useoftheb~atfW~rwjllnot lead to unjustmiddot~~~vleti9~-The ~le~~ ~deii~ IS m9tet9ii~1~ive now t~tve(iliat ~e cbilQCe$of-ove~ti~m~tjonmiddot are ~Jaotdnarily ~

sm~l1middotmiddot middot ~fTbe b~ath~~er ismiddotmiddot)i~asSedin -i~ cQinbined pr~~ticalitymiddotmiddotampil4 use~~ssh em OJ he low side 111 a sl8nficant nu~ber ofcases in-order not to overestimate bloodmiddotatcoholin the

middotmiddotgreaies~j)ossibenumoer OfC8Ses~ Wi~e~ ~Vinlted this ~jusifiable middotmiddotiifltgtr4~r to furthermiddot the legislatures wilt ~rid middotmaiDtmefficiency in cmiddot

oiu~ystemQtJustiCeP ~ _ lt1middot~~middotmiddotmiddotmiddot ~t~ ~ ~ -~~ - -- ~

TheVqwnie tilSe is especially valu~bl~ ~ec~use ~lt)stl9f tJte leading expert~lp the ftefd~pPearcentd and teslifiea5othaftheNew Jersey court had tliebeilefjLofan extraordinarily comigtlet~ ~cord uponwhich to base ~its decision The Downie case reduCes concerns about the

and ~reliability of the breath~test middotJlJachines ~urTentIy permitted by MaSsachusetts law ~- ~

The ieliabiii~y of current technology is beco~ngless of an issue Deliberations jQ Massachusetts can ther~fore f~cus on whether the state wants accurate evidence of alcohol impairment and to what extent it wants such evidence not how the test is administered or whether it is accurate

Stall of Nlw Jersey v Andrew Downie e al 569 A2d 242 (NJ 1990) page 251

25

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bull ~J~i~t Ri ~ gt i~mrmiddot1 ~ middoti~~~~ lt~~~~~$ ~~ ~~~a~~mber) (lIe~fet) middotSiilpeDsl~as ~UI~~its~Cn$ 1

- middot~I986~ middot38iO~9middot - 9449 middot2S NA J I middotmiddott~~l~ t~a8J66o c ~~ 13510 36 2608C)middotd

middotmiddotI~~~J~ i~~~~l~ 3~C ~~ml

1middotgt~~atePcrst A~(iifil~CI oVCrsi8h middott cStima te ~ ~ -I

sect~lIlc MA~J5~centlsirY ~pdotor ~Chi~ICS _ ~l I ~~ gt1 i

~ 1

Ij~~~~~~ qgt ~~~ceJ986~middott~ep~rC~iltage of pe~onsr~fus1Dg~o J~e a breath

orJ)loOd~tes( aft~r arrest for drunk dtiving hasJncreased 44 - p~~~n~lrising f~Qll2S percent to 36 ~rc~rttlt

middot ltOut of33imiddot7~ p~~pl~ -yenr~ted -fo~ dru~dri~i~gj~Massachushy 0 middotsettsciuiiJig-198~12279people refused to take abfeath or blood test -and~()nly U~639 actually took a breath ormiddot bl~od test arter ~ JliTestmiddotmiddot -

bull Registry ~tMotor Vehicles and Office of Alcohol Testing reports do not indicate and cannot account for whether or not 9791 of the states 23918 dnitlk driving offendersin- 1989 were offered a breath or blood testand whether they took or refusedihat test

26 SENATE - No 1900 [December

Ie Of the 11639 offenders who consentedmiddott~ a ~~eath or biood test in 1989o~y6998 haeJ theirJicensessus~middotnded under the provi- sionS of~he-~aamimstraiivePerse role

There ~r~-three~~se~o~ pr~bienis jItlieM~~~b~~etts implied consent ~trategy Firsimany offellders are tefusittjto take a test

~ 1~~~~~~~1~~~~ ~t~~ t~1~~4la~e~~e~ fir~t offe~ders ar~~~soretusing~o t~eth~eSF D~ng thepcriodlt

froQll9ampampto-1982)ii~)1mrber of people refuSing teiake the test has rise~ 44 p~r~ent froJl2S percent of those aITested1t) -36 percent of

those arrested gt ~ - bullbull

~ The iniat~forinfor first a~d ~~c~rilaquo(offe~(etproampraritsoffermiddot middot8ddtiQna~vid~Jice- diat the proportion or-clients refUsing middotto take a

~br~at~ tcentsectt~~ter middotmiddot~IT~~tmiddot ~as risen sharply Alice~ t981 andsecond p~ngers il~e)nu~h~orelikeryo refus~ to take~he middottestmiddot During

calepdar ~~rmiddot1989~ percent ~f the second- offendcrs ad~tted to the i4-ltiyiJogran1reported thalt~ey hadiefus~to take abreath

~ bull 0 bull _ bull bull

test c()mp~ to a 33 percent nite for flr$t~offen4eIS ~ The CoDinu)nwealtIj therefore~ must prosecute 8Imost two-thirds

of its drunk drivers without scientific eViden~ - cd imp8irment Mo~eover~J~e pr~s~~i~penalty structure is~i~~ffecii~e~I~ca~mgthe

vast majorityof dninkdrivers to ~onsend~the ~r~th t~~t Second roughly oile-tbird ofthosewhp~taketb-e bteatbmiddot test and

arefoundtohave alllgh blood aicohol conce~tratioiaren~(getting their licenses suspended Of the 33709 peopie ~~lor drunk driving in MaJossachusetts duIjng 1989 onlyOne-third were documentedHo havetaken a blood alcoh()tteStaftetartestOf those who were dricume~ied to have taken the test (rQtU the Commonshywealths testing experience we could estimate tha~IO800 of these individuals would have had a blood level conCentration of at least 010)8 However datfl from the Registry of Mot~~ Vehicles show that only 6998 persons were suspended under the middotmiddotadininistrative per se provisions All 10800 of those who would have tested above 010 percent however would have been subject to an immediate license

Accordinl to data from the Office of Alcohol Testing only 63 percent of those persons tested durin fiscal year 1989 and 62 percent of those per50m tested during fISCal year 1990 recorded test results of

BACs below 010 percent Given these results it is likely that of the 11639 tests administered in 19Z9 10800 would have BACs higher than 010 percent

SENATE - No 1900 27

suspension 81 aiJai~~e~~there is no ~1earieasonfor the states failuftnO suspen(J the licenSes of Offenders Th~third pio~~em W(~hthe statesimplementatlonoftbe implied

~ consent law is~lli~p~o~ie~tr~cor4 ~eep~ng p1cent riu~ber of people who refuse thehteath~iYi~fan(fthosewho takethe test~c~ouni for only10S perCcent~t9(tat~~~~irestslt ~~very ~isl~rbi~g t~~t_ the state ~l~0~acc9ui1~fqr~t~qpL~Opercent ~I itscaSeSltt~~ ~ gt~_

Sorn~Qf-tht(~uiirepq~~d casestn~y~ hav~ bcent~J)middot~p cit~~mstaJices wheii~~~poli~~iriad(~aij~~ts gtwithOut offerbigtbe tesi niis oCcurs

-J ~ r middot~middotmiddot-i~ middotr~ - __ r - - - -

wh~~ ~secteCp~~~ofic~r ~~np( ~v~ljPJ~ t~_ ~it_n~~~~h~ ~esliHr wheremiddot thercent it~no qualifiedbreadttest oper~tor prese1itcFhi~oC(ursmore

middot~~ f ~ ~ bull - bull ~ bullbull J - - bullbull ~ _ j J bull bull _ bull bullbullbullbull shy

fr~qu~ritlYin_~PIaJ~r~pat1ments Tlielaw r~quir~llfa(iirtJl~)vent

thatt~~lis~~J~fu~~~gta-~cp~~ical test- wh~n~qqe~ted tli~ officer L~c Jiii~gfli~treq~~sfsli~lf~piJllediately prepar~ a~ptfenlepqFrof s1ch ~ ~ ~ jrrefusaIarid~ thtfthis r~phifmust bet end()rseltt6y~tliirdpeison ~who -~~-~~bad i~iiesseltl jJ1~refu~Waowever~hetej~nsect Way Q~o~what _-

r ~ tOpartQfJhe 30middotpe~ntojdie unreported casesis1111Ci tQ t~i~Teason~2o lt gtj q ~ltmiddotgtgtigt lt ~-

~ ~i~ SECT10N FO_~ s~~~~~y ANDRECO~~~~J~r~~N~ Cle~rly the G6Q1ni~n~ealths comQ1itDen( ~~diu~~ driving ~iet1tnce hasti~n i~~oya~~~e s~bst~tial~a~~ sfifssf~~Glt~n~es

10 law~ and recentc()urt de~ls10ns aff~tm~ ltabiAty~for d(Unk dnv10g -accid~iltShave h~(f asigl~ant influence on red~~iiig~r11nk4riving as diq iip~reAAe~rl~welif()rcenient The Com~dilw~a~li~s~~uccess is

also ~itti~utahdo strongpuhlic awareness andconce51L~(ltliedeshydine indrinkll)g~~and thechanging demographicsOf (lie dpving popuI~tion middotfmiddot

Alsltgt in spiie6f noticeable decreases in sevetal~n1nk driving countermeasuresduring tlle latter years of the decade state efforts to deter and identify drunk driving during the years 1980~to 1989 far surpassed the efforts made in the preceding decade (see Table V)

9 MGL Chapter 90 Section 24(1)

20 The Commonwealth must address the problem of circumstances arising when there is no witness to a test Just as local fire departments frequently rely on mutual assistance from other communities police departments must make arrangements for mutunl aid cr for centrJlizeltesting of drunk drivers especially in the more rural areas of the state

gt~middot14 [December

80 81 82 83 84 85 Fiscal Year

MA Dp~tllnt of Rftnu 7180 Snet Po- Audit andOftloll 12180

Flaur 3

- -1990] -SENATE -- No 1900 15

-~- ~

SECTION TWO LEGAL AND AD~TRATIVE CHANGESAFFECIING DRUNK OiuVlNG

-~ -DtnuNC THE 1980s- shybull bullbull bullbull _ - I - bullbull)~ ---~ ~ ~~

lbis ~oJtre~i ~vera1 of~~e mainlegaI ilJ1d administrative _stc- ~~~~Jr(~~cri~IC-~~l~~toco~ttQi~~titk yenvi~~ It reviews -shy

~CJ lA~~dnnJtWamp_agetmiddot the developmen ()f re1)abilitation proshy-it~IQ$~aarchang~jff~~g~n~ties andothermiddotCAuiliermeasures

-~ ~~~~~~~~~ flfgt~ gt ~ gt ~~ bull ~ ~-_ J ~~~~Af~~~beight~~~middotpUi)liccon~rn abQutdnWiig and drlVmg wIraquo~h~Vi~~~ppar~n(iD ibe l~te 1970s andcentar)y 19805 iUpro~pted -shy

ii bf~~~middot~pUbli~p~rceivcent to ~ a draU9~~~ incieasevinmiddot al~oholshylt rela~e4 -rl~ ~r~besamongt~ageIn 1972tt~ st~te ~id penDitted

middot[-f~igttlicdjrSt~(fme thetale of-aicohol~~ pCojl~elgbteen Y~arS of age ~~ otmiddot91aef6 Fbe~gtpublic saw ihis change as a stimUluStoatco~ol-retated ~cr~e~lt~~- ~~ lt _

lt middotWlt~t waamp_l~ceiy~tQ be an i~rease m~he incidence ofdrunk - dri~g~paitisUhirlyamongyoung people iii the 18tC(19708 lCd~~ the

_ltf esbtisnment ~of action groups such as Motherst AgaiQst Drunk ~gt- Diwiligt~ADD) and StUdents Xgainst D~ IgtriVingiS4DD)

middotfTIitse aeti~i$f8roupsmiddot~eie- able to gaiD -media~~ntiop iii a ~aDner ~middot~ltmiddot~Jhatdwane4the public middotattentionmiddotto earner efforts to curb drunk

lt driVing gt - - -

~ 8Ymiddot1979~middotd~nightti~emiddotmiddot(atalcrash rate of dnyer~tw~tyyears old anctunderwas~almo$fflve times the rate of that 9fall6ther drivers This trencl~h~roUghlYmiddotmiddot alarmed the public 8ri~ a newly elected

governor had made campaign promise to changetheage at which a person could purchase alcoholic beverages In 1979the drinking age was raised to twenty years old This was the fiiSt ofseveral legisshylative initiativesdesigned to reduce drinking and driving in Massashychusetts The drinking age was once again raised to age twenty-one in 19848

6 Acta of 1972 Chapter ISS Section 2

~ Acts of 1979 Chapter IS Section 6

bull 8 Acts of 1984 Chapter 312fmiddotmiddotmiddotmiddot

16 -(SENATE - No 1m [December

shy 7- - ~

Tb~ Impact of Legal ~bang~ ~gt-~) Throughoutthe i980s the state made s~veralmore legislative

changes t(fre4uc~ th~ incidence otdrunk driving With each of the legislative changes there wasa noticeable decrease iJidmnk driving activity In i982 the state increased penaities for drunk driving including makiilgjall sentences mandatory for a arletyof-offenders10

When the impact of this act appeared to bedeclininJ by 1985 and 1986 the state passed The Safe Roads Act in the later part of 1986

bull For an excellent discussion of past efforts to deal with this problem see Deterring The Drinking Driver H Ross revised and updated edition DC Heath and Company 1984

Acts of 1982 Chapter 373

I bull

middotmiddotmiddotmiddotf i f

p

II

2

~d~e~~~~if~er

beh~viq~~middotl

~fjmiddot~tftJlt

~r i-est~a~Cmiddotmiddot

-

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~

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arresihi

-~~0--middot~middot

bull ~statisti~y~o

_-0 ~ lt - _ bull ~

~NATE - No 1900 17 - -

~ Thejn~~nto(TheSAre ROad~A~t was to make adjuditati~nfor drunk an~tmiddotmiddotmak(Pe~aIties more middot~~middot~bl f~t as recentmiddot

anaJYl~~~tof~d~8teth~middot~sutanc~tHatjudamp~entwQ~ld~_swift anti~e~ri is th(~O~L~n~~iye Yay t9 b~ve C JJipact ~n p~blic

~~~ ~lt -Yo ~ ~ gt lt~ loJ~~l~~y1 ~~Os~publiccoricepi a~o~tdmiddot(lnkijriyeningalS() affected

themiddotat~fdes~~(ineP911middotmiddot~4 tli~ltc~uits~~t~i)Yete~atlve ~~4~~k~~~tiyen~~ )~i(jii~r ~oi~pletpeni ne~rsfrae~~sUcl1 ~ tbe use

~gmiddotmiddotmiddotoa~ltmiddotbl~Cksmiddot and t~e 4~fjsi()n ~y tlie-Al~o1ionc B~~~tg~~~h~~lComm~iop 0 cuit~ ~~a~ho~~_ inD~ arid re$iauTl1ifS1i~~Qr~bvet middot~coJJrtmiddotmiddotdeciSio~s i~g~ng the liability of i)i~If~(di~ts)or~~iVing dnDJier-s Wh~) w~resugtseqiently jnvolJdin ~ authmof)J1~~t8$lje~ middotht4t ~ siPmcant imp~t on the willingnessmiddotor cortimercW est~blis1iIDentS~ middottomiddot serve aicohol1c ~veragesmiddotmiddot without

~ r~middotmiddotltmiddot ~ t

~-~~~ ~ ~ ~ ~ middotfmiddot

middotbthermiddot~9wlteftn~UreS ApiDStmiddotD~priverS _-~_ ~~ ) p $ ~ p -

Inere~gpubli~concemmiddotapout drunkdriving alsolcentd to a~tronger

fOcuS-bnihe c(ninterii1eaSutes~aicen to limit druDk~diivihg during the - _ HI _ ~~ 1 - bull

1980sinese-ine~i~ tyigti~ally fall into ~hreemyenn categ~ries gt ~~uilkdtiveis olt~~g eVidencemiddot thil~middotth~s-e d~Veis ~

~tuanydrunk ~~rpe~aliiingdrun~ drivers ~ i_ ~)r0 ~

Dr~tirivJDI ~ri~s ~

jUs~ ~~the s~atjsilcsmiddotdein~nstrate a dr~p in drrinkdriyh-tg~actiyity iiid)catethafdrunk drivingarrests fell off dildng the

past d~caa~A~~rdjJigmiddot ~t~~ t~e middotNatioJial HighwayTtaffic-$8fety Admipl~iiati~iJ~middotmiddot~e natiQq~t peak in drunk ~ijyqig eJifdrcement

activityoccurre4 in 19~~when aInt0st 2 iliiJli~ii Pt~ple - approxjmiddotmately ti2 percent~o the nations li~enSeddrivers ~ were

middotarreste4IoJmiddotdrtintltdriving Nevertheless t~e Natio~~rligh~ymiddotSafety Admilfs~ration~stimateS hat even during the p~k years of enforcement police nati6DaIiyapprehendedmiddot only 1out 0(500 people who wercdriving under theinfluence of alcohol atamiddotgiven time

According to infonnatiol1 frtgtm the Office of the Commissioner of Probation enforcement in Massachusetts peaked a little later than

Nichols JL and Ross HL Th~ Eff~elivtM$$ 0 Saneiomor DWI Oftndns paper presented at the International Conference on Alcohol Drugs and Traffic Safety October 1989 Chica80 Illinois

204 CMR 403 adopted December 10 1984

-~

c

--

~

lt

gt ~

- gt

01

19 bull 1 I

39~9i2 - UOS~ 31~1700 40251100

79l

180

SENATE shy No 1900

I ~

~ IS74 - 2S87 I

291C)ooQ - i 36414oo

~

DUlIAreSh ric~sed Driv~n

1990]

Amiddotti~t Rate per ~ ~ l~~DriYers J 1~B7 shy 710 ~

r - 1 ~- ~+ - - - ri

- SO~e ~n~tC P~st- _AUdit and~v~iBht

r-~-middotgt7~ bull ~ ~ ~ 1~ ~ ~

i~gsc~ gt middotOL gt bull bull _ Themes~iratcdncrea$ed263 percent from 1970 to 1984 from

~ shy ~- iai~~lO bull~ariestsptriOOoIicen$eddrivers~~-_ ~ _~ ~~lmiddot ~ ~ gtshy bullbull - __

_ ~ - Be~weiit198()-and 1984 -~he drunk driving arrest raie rose 47 ~ bull ~tf1~t 4 _ bull bull bull - 1

pei~nt ~9ntiiluingt~e~PQsitivetrerid established-d~g the two S p~e~~pifii~yearpeii~ds - shy gt - -~ S~t~84~~arre$ti~t~ h~ d~cIined 24 percent

Tfi~~ii~tff~t~~t-i~OOo licensed 4rivers ini989 (791) is only gt 1pound~nffil8her tbijiit~e i98() rate~_ -T

_ ~middot~--I ~ - 1 _ ~ bull bull bull ~ thF~ ~~~com~tmg explanatio~ for the 24PerCent~c=Crease in drnlt~t~g~Cyentivitysince 1984The t-rstexp~tion

favoi~qbYanu~ber-ofpoJice admiJiistrators is that P8st~nforcement and acfjap2eindQver bChavi()r ~ responsible for the CI~rCaSing rate of aq~$(~~ According to th~ theQry there are f~w~~altestsbecause past enforcement efforts-have successfully deterred d~ driving so

that there are fewer drunk drivers on the roads to apprehend There have not been any local studies to test this explanation~ but few safety experts have been willing to accept this type of anecdotal data on face value

19

1shy

1

1 I

~_ bullbull

~

j -

SENATE ~ No~ 1900 December

Acts of 1961 Chapter 340

14 MGl Chapter 90 Section 24f

1990) 1 lt SENATE ~ Nol900 _

-~~ ~

~i -

PenUllog Drunk Drivers

The Massachusetts system for penalizingdunk drivers includes middotlicense suspensions or revocations fines education and treatment and incarceration The penalties are graduated into three main steps such that theybecome increasingly intensive and they are determined

IS Digesl of Slale Alcohol Highway SafelY Relaled Regulalion eighth edition National Highway Traffic Safety Association

11

- ~

gt SENATE shy No 1900

-

~

[December

~

gt

See Acts of 1982 Chapter 373

c

13

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~i~-~~(~~ ~ ~ ~~ middot(Jey FW4iDgS~ ~ -

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bull ASS1~~~nts-to middotir8t offender programs hv~middot d~crea$ed 20 perceilrsincefis~aLyear 1985i mirroringJh~~~hllng auest tate

bull A~sigriments to the second ~ffenders piogr~~h~lV~deereaSed bull lo _ (

but te-middotdeclirie~has not been as sharp-as fQrthe first offender

(- ~ J)rosr~~ -~ imiddot cmiddotbullbull ~~-- r middotltThe Departme~t of Public 9f Health r~portsltthat while the

frequenCy o~adtni$~i()ns to th~ 14-day trtmen~J)r()gram has middotdecreasedover the last~five years~the demographic cJtaracteristics of fitstand $~cond offender drunk dovers have rem~ined fairly cOnstant includingtheir aver~ge age (approximately 31 ye~s)middot Furthermore inmiddot 1989 when there-were 33709 arrests 2550 drtink drivers (76 percentwent to jail in 1984 when 39912 drunk drivers were arrested 2006 of them were sent to jail (50 percent)

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SENATE No~ -1900

[December - -1

sECnorit~REE I~~VESIN ~IMPLtEi)CONSENT J - po ~ _ --- ro bull

Int~ s~ctio~iof- themiddotr~o~ve 10~ka M~sa~hu~itS~ experience withf~tiilg for~lPt~xication~ nctthe implied conselli law Wcentthen e~amirttlieinw~~f~e~~~p~6(J~~ li~ on~~ain~s aDdmiddot~nmiddot

Ul~eqr~~ineDt ~syst~in ~a~~()Y~~1detltifY thieemiddotprD~~erils with - ~hcentJa~~s~tnp~~~atiQ~th~q~ngmiddoti~reflS~middotrat~1ui1ohgdet8iJl~s

middotmiddot(middot~~middotfP~~~q~I~~ac~~e~~~t~cen~e~sus~~i~~(~h~~~ ~hp ~emiddotil1e- test and faiJ~middot~iidfinaJI~tl1flack9fjdequat~iecoidsmiddotQllwhether the test was iidfu1nister~accepted middotormiddotfCieetectmiddot gt

~~~~jgtt~middotc~-ltmiddot TJ~(~ic~aeY9f1Ji~Tests ~

~7 bullbullbulll-~ - _ bull bull _ - _

Th~i~ middotis-inc~~~g evidencif that th~ tcentst pr~ltUresin place in yen$~U~~t~~u~e_lair pJa-yXor ttSt)~bjects~ft~ tb~tmiddotth~ infrared

iDaelJll~~ reqqired by the~w are accuratecanci teliable In what is ~~~~pg~I~~~~k c~e-in~~e fi~Ilt4Sat~ 6fJV~~Je~se~ v Andrew l)omiddot~m~ et ~l~Jle Supreme Co~ of ~~wJeJSeyhel4~tpat ~ch tes~~

~~c~~~~~~~~in~ ~gt ~ ~~~~ gt ~ ~ We-areconfiaenn~tcontInti~useoftheb~atfW~rwjllnot lead to unjustmiddot~~~vleti9~-The ~le~~ ~deii~ IS m9tet9ii~1~ive now t~tve(iliat ~e cbilQCe$of-ove~ti~m~tjonmiddot are ~Jaotdnarily ~

sm~l1middotmiddot middot ~fTbe b~ath~~er ismiddotmiddot)i~asSedin -i~ cQinbined pr~~ticalitymiddotmiddotampil4 use~~ssh em OJ he low side 111 a sl8nficant nu~ber ofcases in-order not to overestimate bloodmiddotatcoholin the

middotmiddotgreaies~j)ossibenumoer OfC8Ses~ Wi~e~ ~Vinlted this ~jusifiable middotmiddotiifltgtr4~r to furthermiddot the legislatures wilt ~rid middotmaiDtmefficiency in cmiddot

oiu~ystemQtJustiCeP ~ _ lt1middot~~middotmiddotmiddotmiddot ~t~ ~ ~ -~~ - -- ~

TheVqwnie tilSe is especially valu~bl~ ~ec~use ~lt)stl9f tJte leading expert~lp the ftefd~pPearcentd and teslifiea5othaftheNew Jersey court had tliebeilefjLofan extraordinarily comigtlet~ ~cord uponwhich to base ~its decision The Downie case reduCes concerns about the

and ~reliability of the breath~test middotJlJachines ~urTentIy permitted by MaSsachusetts law ~- ~

The ieliabiii~y of current technology is beco~ngless of an issue Deliberations jQ Massachusetts can ther~fore f~cus on whether the state wants accurate evidence of alcohol impairment and to what extent it wants such evidence not how the test is administered or whether it is accurate

Stall of Nlw Jersey v Andrew Downie e al 569 A2d 242 (NJ 1990) page 251

25

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bull ~J~i~t Ri ~ gt i~mrmiddot1 ~ middoti~~~~ lt~~~~~$ ~~ ~~~a~~mber) (lIe~fet) middotSiilpeDsl~as ~UI~~its~Cn$ 1

- middot~I986~ middot38iO~9middot - 9449 middot2S NA J I middotmiddott~~l~ t~a8J66o c ~~ 13510 36 2608C)middotd

middotmiddotI~~~J~ i~~~~l~ 3~C ~~ml

1middotgt~~atePcrst A~(iifil~CI oVCrsi8h middott cStima te ~ ~ -I

sect~lIlc MA~J5~centlsirY ~pdotor ~Chi~ICS _ ~l I ~~ gt1 i

~ 1

Ij~~~~~~ qgt ~~~ceJ986~middott~ep~rC~iltage of pe~onsr~fus1Dg~o J~e a breath

orJ)loOd~tes( aft~r arrest for drunk dtiving hasJncreased 44 - p~~~n~lrising f~Qll2S percent to 36 ~rc~rttlt

middot ltOut of33imiddot7~ p~~pl~ -yenr~ted -fo~ dru~dri~i~gj~Massachushy 0 middotsettsciuiiJig-198~12279people refused to take abfeath or blood test -and~()nly U~639 actually took a breath ormiddot bl~od test arter ~ JliTestmiddotmiddot -

bull Registry ~tMotor Vehicles and Office of Alcohol Testing reports do not indicate and cannot account for whether or not 9791 of the states 23918 dnitlk driving offendersin- 1989 were offered a breath or blood testand whether they took or refusedihat test

26 SENATE - No 1900 [December

Ie Of the 11639 offenders who consentedmiddott~ a ~~eath or biood test in 1989o~y6998 haeJ theirJicensessus~middotnded under the provi- sionS of~he-~aamimstraiivePerse role

There ~r~-three~~se~o~ pr~bienis jItlieM~~~b~~etts implied consent ~trategy Firsimany offellders are tefusittjto take a test

~ 1~~~~~~~1~~~~ ~t~~ t~1~~4la~e~~e~ fir~t offe~ders ar~~~soretusing~o t~eth~eSF D~ng thepcriodlt

froQll9ampampto-1982)ii~)1mrber of people refuSing teiake the test has rise~ 44 p~r~ent froJl2S percent of those aITested1t) -36 percent of

those arrested gt ~ - bullbull

~ The iniat~forinfor first a~d ~~c~rilaquo(offe~(etproampraritsoffermiddot middot8ddtiQna~vid~Jice- diat the proportion or-clients refUsing middotto take a

~br~at~ tcentsectt~~ter middotmiddot~IT~~tmiddot ~as risen sharply Alice~ t981 andsecond p~ngers il~e)nu~h~orelikeryo refus~ to take~he middottestmiddot During

calepdar ~~rmiddot1989~ percent ~f the second- offendcrs ad~tted to the i4-ltiyiJogran1reported thalt~ey hadiefus~to take abreath

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test c()mp~ to a 33 percent nite for flr$t~offen4eIS ~ The CoDinu)nwealtIj therefore~ must prosecute 8Imost two-thirds

of its drunk drivers without scientific eViden~ - cd imp8irment Mo~eover~J~e pr~s~~i~penalty structure is~i~~ffecii~e~I~ca~mgthe

vast majorityof dninkdrivers to ~onsend~the ~r~th t~~t Second roughly oile-tbird ofthosewhp~taketb-e bteatbmiddot test and

arefoundtohave alllgh blood aicohol conce~tratioiaren~(getting their licenses suspended Of the 33709 peopie ~~lor drunk driving in MaJossachusetts duIjng 1989 onlyOne-third were documentedHo havetaken a blood alcoh()tteStaftetartestOf those who were dricume~ied to have taken the test (rQtU the Commonshywealths testing experience we could estimate tha~IO800 of these individuals would have had a blood level conCentration of at least 010)8 However datfl from the Registry of Mot~~ Vehicles show that only 6998 persons were suspended under the middotmiddotadininistrative per se provisions All 10800 of those who would have tested above 010 percent however would have been subject to an immediate license

Accordinl to data from the Office of Alcohol Testing only 63 percent of those persons tested durin fiscal year 1989 and 62 percent of those per50m tested during fISCal year 1990 recorded test results of

BACs below 010 percent Given these results it is likely that of the 11639 tests administered in 19Z9 10800 would have BACs higher than 010 percent

SENATE - No 1900 27

suspension 81 aiJai~~e~~there is no ~1earieasonfor the states failuftnO suspen(J the licenSes of Offenders Th~third pio~~em W(~hthe statesimplementatlonoftbe implied

~ consent law is~lli~p~o~ie~tr~cor4 ~eep~ng p1cent riu~ber of people who refuse thehteath~iYi~fan(fthosewho takethe test~c~ouni for only10S perCcent~t9(tat~~~~irestslt ~~very ~isl~rbi~g t~~t_ the state ~l~0~acc9ui1~fqr~t~qpL~Opercent ~I itscaSeSltt~~ ~ gt~_

Sorn~Qf-tht(~uiirepq~~d casestn~y~ hav~ bcent~J)middot~p cit~~mstaJices wheii~~~poli~~iriad(~aij~~ts gtwithOut offerbigtbe tesi niis oCcurs

-J ~ r middot~middotmiddot-i~ middotr~ - __ r - - - -

wh~~ ~secteCp~~~ofic~r ~~np( ~v~ljPJ~ t~_ ~it_n~~~~h~ ~esliHr wheremiddot thercent it~no qualifiedbreadttest oper~tor prese1itcFhi~oC(ursmore

middot~~ f ~ ~ bull - bull ~ bullbull J - - bullbull ~ _ j J bull bull _ bull bullbullbullbull shy

fr~qu~ritlYin_~PIaJ~r~pat1ments Tlielaw r~quir~llfa(iirtJl~)vent

thatt~~lis~~J~fu~~~gta-~cp~~ical test- wh~n~qqe~ted tli~ officer L~c Jiii~gfli~treq~~sfsli~lf~piJllediately prepar~ a~ptfenlepqFrof s1ch ~ ~ ~ jrrefusaIarid~ thtfthis r~phifmust bet end()rseltt6y~tliirdpeison ~who -~~-~~bad i~iiesseltl jJ1~refu~Waowever~hetej~nsect Way Q~o~what _-

r ~ tOpartQfJhe 30middotpe~ntojdie unreported casesis1111Ci tQ t~i~Teason~2o lt gtj q ~ltmiddotgtgtigt lt ~-

~ ~i~ SECT10N FO_~ s~~~~~y ANDRECO~~~~J~r~~N~ Cle~rly the G6Q1ni~n~ealths comQ1itDen( ~~diu~~ driving ~iet1tnce hasti~n i~~oya~~~e s~bst~tial~a~~ sfifssf~~Glt~n~es

10 law~ and recentc()urt de~ls10ns aff~tm~ ltabiAty~for d(Unk dnv10g -accid~iltShave h~(f asigl~ant influence on red~~iiig~r11nk4riving as diq iip~reAAe~rl~welif()rcenient The Com~dilw~a~li~s~~uccess is

also ~itti~utahdo strongpuhlic awareness andconce51L~(ltliedeshydine indrinkll)g~~and thechanging demographicsOf (lie dpving popuI~tion middotfmiddot

Alsltgt in spiie6f noticeable decreases in sevetal~n1nk driving countermeasuresduring tlle latter years of the decade state efforts to deter and identify drunk driving during the years 1980~to 1989 far surpassed the efforts made in the preceding decade (see Table V)

9 MGL Chapter 90 Section 24(1)

20 The Commonwealth must address the problem of circumstances arising when there is no witness to a test Just as local fire departments frequently rely on mutual assistance from other communities police departments must make arrangements for mutunl aid cr for centrJlizeltesting of drunk drivers especially in the more rural areas of the state

- -1990] -SENATE -- No 1900 15

-~- ~

SECTION TWO LEGAL AND AD~TRATIVE CHANGESAFFECIING DRUNK OiuVlNG

-~ -DtnuNC THE 1980s- shybull bullbull bullbull _ - I - bullbull)~ ---~ ~ ~~

lbis ~oJtre~i ~vera1 of~~e mainlegaI ilJ1d administrative _stc- ~~~~Jr(~~cri~IC-~~l~~toco~ttQi~~titk yenvi~~ It reviews -shy

~CJ lA~~dnnJtWamp_agetmiddot the developmen ()f re1)abilitation proshy-it~IQ$~aarchang~jff~~g~n~ties andothermiddotCAuiliermeasures

-~ ~~~~~~~~~ flfgt~ gt ~ gt ~~ bull ~ ~-_ J ~~~~Af~~~beight~~~middotpUi)liccon~rn abQutdnWiig and drlVmg wIraquo~h~Vi~~~ppar~n(iD ibe l~te 1970s andcentar)y 19805 iUpro~pted -shy

ii bf~~~middot~pUbli~p~rceivcent to ~ a draU9~~~ incieasevinmiddot al~oholshylt rela~e4 -rl~ ~r~besamongt~ageIn 1972tt~ st~te ~id penDitted

middot[-f~igttlicdjrSt~(fme thetale of-aicohol~~ pCojl~elgbteen Y~arS of age ~~ otmiddot91aef6 Fbe~gtpublic saw ihis change as a stimUluStoatco~ol-retated ~cr~e~lt~~- ~~ lt _

lt middotWlt~t waamp_l~ceiy~tQ be an i~rease m~he incidence ofdrunk - dri~g~paitisUhirlyamongyoung people iii the 18tC(19708 lCd~~ the

_ltf esbtisnment ~of action groups such as Motherst AgaiQst Drunk ~gt- Diwiligt~ADD) and StUdents Xgainst D~ IgtriVingiS4DD)

middotfTIitse aeti~i$f8roupsmiddot~eie- able to gaiD -media~~ntiop iii a ~aDner ~middot~ltmiddot~Jhatdwane4the public middotattentionmiddotto earner efforts to curb drunk

lt driVing gt - - -

~ 8Ymiddot1979~middotd~nightti~emiddotmiddot(atalcrash rate of dnyer~tw~tyyears old anctunderwas~almo$fflve times the rate of that 9fall6ther drivers This trencl~h~roUghlYmiddotmiddot alarmed the public 8ri~ a newly elected

governor had made campaign promise to changetheage at which a person could purchase alcoholic beverages In 1979the drinking age was raised to twenty years old This was the fiiSt ofseveral legisshylative initiativesdesigned to reduce drinking and driving in Massashychusetts The drinking age was once again raised to age twenty-one in 19848

6 Acta of 1972 Chapter ISS Section 2

~ Acts of 1979 Chapter IS Section 6

bull 8 Acts of 1984 Chapter 312fmiddotmiddotmiddotmiddot

16 -(SENATE - No 1m [December

shy 7- - ~

Tb~ Impact of Legal ~bang~ ~gt-~) Throughoutthe i980s the state made s~veralmore legislative

changes t(fre4uc~ th~ incidence otdrunk driving With each of the legislative changes there wasa noticeable decrease iJidmnk driving activity In i982 the state increased penaities for drunk driving including makiilgjall sentences mandatory for a arletyof-offenders10

When the impact of this act appeared to bedeclininJ by 1985 and 1986 the state passed The Safe Roads Act in the later part of 1986

bull For an excellent discussion of past efforts to deal with this problem see Deterring The Drinking Driver H Ross revised and updated edition DC Heath and Company 1984

Acts of 1982 Chapter 373

I bull

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~NATE - No 1900 17 - -

~ Thejn~~nto(TheSAre ROad~A~t was to make adjuditati~nfor drunk an~tmiddotmiddotmak(Pe~aIties more middot~~middot~bl f~t as recentmiddot

anaJYl~~~tof~d~8teth~middot~sutanc~tHatjudamp~entwQ~ld~_swift anti~e~ri is th(~O~L~n~~iye Yay t9 b~ve C JJipact ~n p~blic

~~~ ~lt -Yo ~ ~ gt lt~ loJ~~l~~y1 ~~Os~publiccoricepi a~o~tdmiddot(lnkijriyeningalS() affected

themiddotat~fdes~~(ineP911middotmiddot~4 tli~ltc~uits~~t~i)Yete~atlve ~~4~~k~~~tiyen~~ )~i(jii~r ~oi~pletpeni ne~rsfrae~~sUcl1 ~ tbe use

~gmiddotmiddotmiddotoa~ltmiddotbl~Cksmiddot and t~e 4~fjsi()n ~y tlie-Al~o1ionc B~~~tg~~~h~~lComm~iop 0 cuit~ ~~a~ho~~_ inD~ arid re$iauTl1ifS1i~~Qr~bvet middot~coJJrtmiddotmiddotdeciSio~s i~g~ng the liability of i)i~If~(di~ts)or~~iVing dnDJier-s Wh~) w~resugtseqiently jnvolJdin ~ authmof)J1~~t8$lje~ middotht4t ~ siPmcant imp~t on the willingnessmiddotor cortimercW est~blis1iIDentS~ middottomiddot serve aicohol1c ~veragesmiddotmiddot without

~ r~middotmiddotltmiddot ~ t

~-~~~ ~ ~ ~ ~ middotfmiddot

middotbthermiddot~9wlteftn~UreS ApiDStmiddotD~priverS _-~_ ~~ ) p $ ~ p -

Inere~gpubli~concemmiddotapout drunkdriving alsolcentd to a~tronger

fOcuS-bnihe c(ninterii1eaSutes~aicen to limit druDk~diivihg during the - _ HI _ ~~ 1 - bull

1980sinese-ine~i~ tyigti~ally fall into ~hreemyenn categ~ries gt ~~uilkdtiveis olt~~g eVidencemiddot thil~middotth~s-e d~Veis ~

~tuanydrunk ~~rpe~aliiingdrun~ drivers ~ i_ ~)r0 ~

Dr~tirivJDI ~ri~s ~

jUs~ ~~the s~atjsilcsmiddotdein~nstrate a dr~p in drrinkdriyh-tg~actiyity iiid)catethafdrunk drivingarrests fell off dildng the

past d~caa~A~~rdjJigmiddot ~t~~ t~e middotNatioJial HighwayTtaffic-$8fety Admipl~iiati~iJ~middotmiddot~e natiQq~t peak in drunk ~ijyqig eJifdrcement

activityoccurre4 in 19~~when aInt0st 2 iliiJli~ii Pt~ple - approxjmiddotmately ti2 percent~o the nations li~enSeddrivers ~ were

middotarreste4IoJmiddotdrtintltdriving Nevertheless t~e Natio~~rligh~ymiddotSafety Admilfs~ration~stimateS hat even during the p~k years of enforcement police nati6DaIiyapprehendedmiddot only 1out 0(500 people who wercdriving under theinfluence of alcohol atamiddotgiven time

According to infonnatiol1 frtgtm the Office of the Commissioner of Probation enforcement in Massachusetts peaked a little later than

Nichols JL and Ross HL Th~ Eff~elivtM$$ 0 Saneiomor DWI Oftndns paper presented at the International Conference on Alcohol Drugs and Traffic Safety October 1989 Chica80 Illinois

204 CMR 403 adopted December 10 1984

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39~9i2 - UOS~ 31~1700 40251100

79l

180

SENATE shy No 1900

I ~

~ IS74 - 2S87 I

291C)ooQ - i 36414oo

~

DUlIAreSh ric~sed Driv~n

1990]

Amiddotti~t Rate per ~ ~ l~~DriYers J 1~B7 shy 710 ~

r - 1 ~- ~+ - - - ri

- SO~e ~n~tC P~st- _AUdit and~v~iBht

r-~-middotgt7~ bull ~ ~ ~ 1~ ~ ~

i~gsc~ gt middotOL gt bull bull _ Themes~iratcdncrea$ed263 percent from 1970 to 1984 from

~ shy ~- iai~~lO bull~ariestsptriOOoIicen$eddrivers~~-_ ~ _~ ~~lmiddot ~ ~ gtshy bullbull - __

_ ~ - Be~weiit198()-and 1984 -~he drunk driving arrest raie rose 47 ~ bull ~tf1~t 4 _ bull bull bull - 1

pei~nt ~9ntiiluingt~e~PQsitivetrerid established-d~g the two S p~e~~pifii~yearpeii~ds - shy gt - -~ S~t~84~~arre$ti~t~ h~ d~cIined 24 percent

Tfi~~ii~tff~t~~t-i~OOo licensed 4rivers ini989 (791) is only gt 1pound~nffil8her tbijiit~e i98() rate~_ -T

_ ~middot~--I ~ - 1 _ ~ bull bull bull ~ thF~ ~~~com~tmg explanatio~ for the 24PerCent~c=Crease in drnlt~t~g~Cyentivitysince 1984The t-rstexp~tion

favoi~qbYanu~ber-ofpoJice admiJiistrators is that P8st~nforcement and acfjap2eindQver bChavi()r ~ responsible for the CI~rCaSing rate of aq~$(~~ According to th~ theQry there are f~w~~altestsbecause past enforcement efforts-have successfully deterred d~ driving so

that there are fewer drunk drivers on the roads to apprehend There have not been any local studies to test this explanation~ but few safety experts have been willing to accept this type of anecdotal data on face value

19

1shy

1

1 I

~_ bullbull

~

j -

SENATE ~ No~ 1900 December

Acts of 1961 Chapter 340

14 MGl Chapter 90 Section 24f

1990) 1 lt SENATE ~ Nol900 _

-~~ ~

~i -

PenUllog Drunk Drivers

The Massachusetts system for penalizingdunk drivers includes middotlicense suspensions or revocations fines education and treatment and incarceration The penalties are graduated into three main steps such that theybecome increasingly intensive and they are determined

IS Digesl of Slale Alcohol Highway SafelY Relaled Regulalion eighth edition National Highway Traffic Safety Association

11

- ~

gt SENATE shy No 1900

-

~

[December

~

gt

See Acts of 1982 Chapter 373

c

13

i

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~i~-~~(~~ ~ ~ ~~ middot(Jey FW4iDgS~ ~ -

- ~_~ _~ ~~ ~ g- ~~ 1__ I bull J

bull ASS1~~~nts-to middotir8t offender programs hv~middot d~crea$ed 20 perceilrsincefis~aLyear 1985i mirroringJh~~~hllng auest tate

bull A~sigriments to the second ~ffenders piogr~~h~lV~deereaSed bull lo _ (

but te-middotdeclirie~has not been as sharp-as fQrthe first offender

(- ~ J)rosr~~ -~ imiddot cmiddotbullbull ~~-- r middotltThe Departme~t of Public 9f Health r~portsltthat while the

frequenCy o~adtni$~i()ns to th~ 14-day trtmen~J)r()gram has middotdecreasedover the last~five years~the demographic cJtaracteristics of fitstand $~cond offender drunk dovers have rem~ined fairly cOnstant includingtheir aver~ge age (approximately 31 ye~s)middot Furthermore inmiddot 1989 when there-were 33709 arrests 2550 drtink drivers (76 percentwent to jail in 1984 when 39912 drunk drivers were arrested 2006 of them were sent to jail (50 percent)

bull bullbull bull

17

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accur~~y

SENATE No~ -1900

[December - -1

sECnorit~REE I~~VESIN ~IMPLtEi)CONSENT J - po ~ _ --- ro bull

Int~ s~ctio~iof- themiddotr~o~ve 10~ka M~sa~hu~itS~ experience withf~tiilg for~lPt~xication~ nctthe implied conselli law Wcentthen e~amirttlieinw~~f~e~~~p~6(J~~ li~ on~~ain~s aDdmiddot~nmiddot

Ul~eqr~~ineDt ~syst~in ~a~~()Y~~1detltifY thieemiddotprD~~erils with - ~hcentJa~~s~tnp~~~atiQ~th~q~ngmiddoti~reflS~middotrat~1ui1ohgdet8iJl~s

middotmiddot(middot~~middotfP~~~q~I~~ac~~e~~~t~cen~e~sus~~i~~(~h~~~ ~hp ~emiddotil1e- test and faiJ~middot~iidfinaJI~tl1flack9fjdequat~iecoidsmiddotQllwhether the test was iidfu1nister~accepted middotormiddotfCieetectmiddot gt

~~~~jgtt~middotc~-ltmiddot TJ~(~ic~aeY9f1Ji~Tests ~

~7 bullbullbulll-~ - _ bull bull _ - _

Th~i~ middotis-inc~~~g evidencif that th~ tcentst pr~ltUresin place in yen$~U~~t~~u~e_lair pJa-yXor ttSt)~bjects~ft~ tb~tmiddotth~ infrared

iDaelJll~~ reqqired by the~w are accuratecanci teliable In what is ~~~~pg~I~~~~k c~e-in~~e fi~Ilt4Sat~ 6fJV~~Je~se~ v Andrew l)omiddot~m~ et ~l~Jle Supreme Co~ of ~~wJeJSeyhel4~tpat ~ch tes~~

~~c~~~~~~~~in~ ~gt ~ ~~~~ gt ~ ~ We-areconfiaenn~tcontInti~useoftheb~atfW~rwjllnot lead to unjustmiddot~~~vleti9~-The ~le~~ ~deii~ IS m9tet9ii~1~ive now t~tve(iliat ~e cbilQCe$of-ove~ti~m~tjonmiddot are ~Jaotdnarily ~

sm~l1middotmiddot middot ~fTbe b~ath~~er ismiddotmiddot)i~asSedin -i~ cQinbined pr~~ticalitymiddotmiddotampil4 use~~ssh em OJ he low side 111 a sl8nficant nu~ber ofcases in-order not to overestimate bloodmiddotatcoholin the

middotmiddotgreaies~j)ossibenumoer OfC8Ses~ Wi~e~ ~Vinlted this ~jusifiable middotmiddotiifltgtr4~r to furthermiddot the legislatures wilt ~rid middotmaiDtmefficiency in cmiddot

oiu~ystemQtJustiCeP ~ _ lt1middot~~middotmiddotmiddotmiddot ~t~ ~ ~ -~~ - -- ~

TheVqwnie tilSe is especially valu~bl~ ~ec~use ~lt)stl9f tJte leading expert~lp the ftefd~pPearcentd and teslifiea5othaftheNew Jersey court had tliebeilefjLofan extraordinarily comigtlet~ ~cord uponwhich to base ~its decision The Downie case reduCes concerns about the

and ~reliability of the breath~test middotJlJachines ~urTentIy permitted by MaSsachusetts law ~- ~

The ieliabiii~y of current technology is beco~ngless of an issue Deliberations jQ Massachusetts can ther~fore f~cus on whether the state wants accurate evidence of alcohol impairment and to what extent it wants such evidence not how the test is administered or whether it is accurate

Stall of Nlw Jersey v Andrew Downie e al 569 A2d 242 (NJ 1990) page 251

25

r J I

bull ~J~i~t Ri ~ gt i~mrmiddot1 ~ middoti~~~~ lt~~~~~$ ~~ ~~~a~~mber) (lIe~fet) middotSiilpeDsl~as ~UI~~its~Cn$ 1

- middot~I986~ middot38iO~9middot - 9449 middot2S NA J I middotmiddott~~l~ t~a8J66o c ~~ 13510 36 2608C)middotd

middotmiddotI~~~J~ i~~~~l~ 3~C ~~ml

1middotgt~~atePcrst A~(iifil~CI oVCrsi8h middott cStima te ~ ~ -I

sect~lIlc MA~J5~centlsirY ~pdotor ~Chi~ICS _ ~l I ~~ gt1 i

~ 1

Ij~~~~~~ qgt ~~~ceJ986~middott~ep~rC~iltage of pe~onsr~fus1Dg~o J~e a breath

orJ)loOd~tes( aft~r arrest for drunk dtiving hasJncreased 44 - p~~~n~lrising f~Qll2S percent to 36 ~rc~rttlt

middot ltOut of33imiddot7~ p~~pl~ -yenr~ted -fo~ dru~dri~i~gj~Massachushy 0 middotsettsciuiiJig-198~12279people refused to take abfeath or blood test -and~()nly U~639 actually took a breath ormiddot bl~od test arter ~ JliTestmiddotmiddot -

bull Registry ~tMotor Vehicles and Office of Alcohol Testing reports do not indicate and cannot account for whether or not 9791 of the states 23918 dnitlk driving offendersin- 1989 were offered a breath or blood testand whether they took or refusedihat test

26 SENATE - No 1900 [December

Ie Of the 11639 offenders who consentedmiddott~ a ~~eath or biood test in 1989o~y6998 haeJ theirJicensessus~middotnded under the provi- sionS of~he-~aamimstraiivePerse role

There ~r~-three~~se~o~ pr~bienis jItlieM~~~b~~etts implied consent ~trategy Firsimany offellders are tefusittjto take a test

~ 1~~~~~~~1~~~~ ~t~~ t~1~~4la~e~~e~ fir~t offe~ders ar~~~soretusing~o t~eth~eSF D~ng thepcriodlt

froQll9ampampto-1982)ii~)1mrber of people refuSing teiake the test has rise~ 44 p~r~ent froJl2S percent of those aITested1t) -36 percent of

those arrested gt ~ - bullbull

~ The iniat~forinfor first a~d ~~c~rilaquo(offe~(etproampraritsoffermiddot middot8ddtiQna~vid~Jice- diat the proportion or-clients refUsing middotto take a

~br~at~ tcentsectt~~ter middotmiddot~IT~~tmiddot ~as risen sharply Alice~ t981 andsecond p~ngers il~e)nu~h~orelikeryo refus~ to take~he middottestmiddot During

calepdar ~~rmiddot1989~ percent ~f the second- offendcrs ad~tted to the i4-ltiyiJogran1reported thalt~ey hadiefus~to take abreath

~ bull 0 bull _ bull bull

test c()mp~ to a 33 percent nite for flr$t~offen4eIS ~ The CoDinu)nwealtIj therefore~ must prosecute 8Imost two-thirds

of its drunk drivers without scientific eViden~ - cd imp8irment Mo~eover~J~e pr~s~~i~penalty structure is~i~~ffecii~e~I~ca~mgthe

vast majorityof dninkdrivers to ~onsend~the ~r~th t~~t Second roughly oile-tbird ofthosewhp~taketb-e bteatbmiddot test and

arefoundtohave alllgh blood aicohol conce~tratioiaren~(getting their licenses suspended Of the 33709 peopie ~~lor drunk driving in MaJossachusetts duIjng 1989 onlyOne-third were documentedHo havetaken a blood alcoh()tteStaftetartestOf those who were dricume~ied to have taken the test (rQtU the Commonshywealths testing experience we could estimate tha~IO800 of these individuals would have had a blood level conCentration of at least 010)8 However datfl from the Registry of Mot~~ Vehicles show that only 6998 persons were suspended under the middotmiddotadininistrative per se provisions All 10800 of those who would have tested above 010 percent however would have been subject to an immediate license

Accordinl to data from the Office of Alcohol Testing only 63 percent of those persons tested durin fiscal year 1989 and 62 percent of those per50m tested during fISCal year 1990 recorded test results of

BACs below 010 percent Given these results it is likely that of the 11639 tests administered in 19Z9 10800 would have BACs higher than 010 percent

SENATE - No 1900 27

suspension 81 aiJai~~e~~there is no ~1earieasonfor the states failuftnO suspen(J the licenSes of Offenders Th~third pio~~em W(~hthe statesimplementatlonoftbe implied

~ consent law is~lli~p~o~ie~tr~cor4 ~eep~ng p1cent riu~ber of people who refuse thehteath~iYi~fan(fthosewho takethe test~c~ouni for only10S perCcent~t9(tat~~~~irestslt ~~very ~isl~rbi~g t~~t_ the state ~l~0~acc9ui1~fqr~t~qpL~Opercent ~I itscaSeSltt~~ ~ gt~_

Sorn~Qf-tht(~uiirepq~~d casestn~y~ hav~ bcent~J)middot~p cit~~mstaJices wheii~~~poli~~iriad(~aij~~ts gtwithOut offerbigtbe tesi niis oCcurs

-J ~ r middot~middotmiddot-i~ middotr~ - __ r - - - -

wh~~ ~secteCp~~~ofic~r ~~np( ~v~ljPJ~ t~_ ~it_n~~~~h~ ~esliHr wheremiddot thercent it~no qualifiedbreadttest oper~tor prese1itcFhi~oC(ursmore

middot~~ f ~ ~ bull - bull ~ bullbull J - - bullbull ~ _ j J bull bull _ bull bullbullbullbull shy

fr~qu~ritlYin_~PIaJ~r~pat1ments Tlielaw r~quir~llfa(iirtJl~)vent

thatt~~lis~~J~fu~~~gta-~cp~~ical test- wh~n~qqe~ted tli~ officer L~c Jiii~gfli~treq~~sfsli~lf~piJllediately prepar~ a~ptfenlepqFrof s1ch ~ ~ ~ jrrefusaIarid~ thtfthis r~phifmust bet end()rseltt6y~tliirdpeison ~who -~~-~~bad i~iiesseltl jJ1~refu~Waowever~hetej~nsect Way Q~o~what _-

r ~ tOpartQfJhe 30middotpe~ntojdie unreported casesis1111Ci tQ t~i~Teason~2o lt gtj q ~ltmiddotgtgtigt lt ~-

~ ~i~ SECT10N FO_~ s~~~~~y ANDRECO~~~~J~r~~N~ Cle~rly the G6Q1ni~n~ealths comQ1itDen( ~~diu~~ driving ~iet1tnce hasti~n i~~oya~~~e s~bst~tial~a~~ sfifssf~~Glt~n~es

10 law~ and recentc()urt de~ls10ns aff~tm~ ltabiAty~for d(Unk dnv10g -accid~iltShave h~(f asigl~ant influence on red~~iiig~r11nk4riving as diq iip~reAAe~rl~welif()rcenient The Com~dilw~a~li~s~~uccess is

also ~itti~utahdo strongpuhlic awareness andconce51L~(ltliedeshydine indrinkll)g~~and thechanging demographicsOf (lie dpving popuI~tion middotfmiddot

Alsltgt in spiie6f noticeable decreases in sevetal~n1nk driving countermeasuresduring tlle latter years of the decade state efforts to deter and identify drunk driving during the years 1980~to 1989 far surpassed the efforts made in the preceding decade (see Table V)

9 MGL Chapter 90 Section 24(1)

20 The Commonwealth must address the problem of circumstances arising when there is no witness to a test Just as local fire departments frequently rely on mutual assistance from other communities police departments must make arrangements for mutunl aid cr for centrJlizeltesting of drunk drivers especially in the more rural areas of the state

16 -(SENATE - No 1m [December

shy 7- - ~

Tb~ Impact of Legal ~bang~ ~gt-~) Throughoutthe i980s the state made s~veralmore legislative

changes t(fre4uc~ th~ incidence otdrunk driving With each of the legislative changes there wasa noticeable decrease iJidmnk driving activity In i982 the state increased penaities for drunk driving including makiilgjall sentences mandatory for a arletyof-offenders10

When the impact of this act appeared to bedeclininJ by 1985 and 1986 the state passed The Safe Roads Act in the later part of 1986

bull For an excellent discussion of past efforts to deal with this problem see Deterring The Drinking Driver H Ross revised and updated edition DC Heath and Company 1984

Acts of 1982 Chapter 373

I bull

middotmiddotmiddotmiddotf i f

p

II

2

~d~e~~~~if~er

beh~viq~~middotl

~fjmiddot~tftJlt

~r i-est~a~Cmiddotmiddot

-

~~ tmiddot ~ gt _

~

gt

arresihi

-~~0--middot~middot

bull ~statisti~y~o

_-0 ~ lt - _ bull ~

~NATE - No 1900 17 - -

~ Thejn~~nto(TheSAre ROad~A~t was to make adjuditati~nfor drunk an~tmiddotmiddotmak(Pe~aIties more middot~~middot~bl f~t as recentmiddot

anaJYl~~~tof~d~8teth~middot~sutanc~tHatjudamp~entwQ~ld~_swift anti~e~ri is th(~O~L~n~~iye Yay t9 b~ve C JJipact ~n p~blic

~~~ ~lt -Yo ~ ~ gt lt~ loJ~~l~~y1 ~~Os~publiccoricepi a~o~tdmiddot(lnkijriyeningalS() affected

themiddotat~fdes~~(ineP911middotmiddot~4 tli~ltc~uits~~t~i)Yete~atlve ~~4~~k~~~tiyen~~ )~i(jii~r ~oi~pletpeni ne~rsfrae~~sUcl1 ~ tbe use

~gmiddotmiddotmiddotoa~ltmiddotbl~Cksmiddot and t~e 4~fjsi()n ~y tlie-Al~o1ionc B~~~tg~~~h~~lComm~iop 0 cuit~ ~~a~ho~~_ inD~ arid re$iauTl1ifS1i~~Qr~bvet middot~coJJrtmiddotmiddotdeciSio~s i~g~ng the liability of i)i~If~(di~ts)or~~iVing dnDJier-s Wh~) w~resugtseqiently jnvolJdin ~ authmof)J1~~t8$lje~ middotht4t ~ siPmcant imp~t on the willingnessmiddotor cortimercW est~blis1iIDentS~ middottomiddot serve aicohol1c ~veragesmiddotmiddot without

~ r~middotmiddotltmiddot ~ t

~-~~~ ~ ~ ~ ~ middotfmiddot

middotbthermiddot~9wlteftn~UreS ApiDStmiddotD~priverS _-~_ ~~ ) p $ ~ p -

Inere~gpubli~concemmiddotapout drunkdriving alsolcentd to a~tronger

fOcuS-bnihe c(ninterii1eaSutes~aicen to limit druDk~diivihg during the - _ HI _ ~~ 1 - bull

1980sinese-ine~i~ tyigti~ally fall into ~hreemyenn categ~ries gt ~~uilkdtiveis olt~~g eVidencemiddot thil~middotth~s-e d~Veis ~

~tuanydrunk ~~rpe~aliiingdrun~ drivers ~ i_ ~)r0 ~

Dr~tirivJDI ~ri~s ~

jUs~ ~~the s~atjsilcsmiddotdein~nstrate a dr~p in drrinkdriyh-tg~actiyity iiid)catethafdrunk drivingarrests fell off dildng the

past d~caa~A~~rdjJigmiddot ~t~~ t~e middotNatioJial HighwayTtaffic-$8fety Admipl~iiati~iJ~middotmiddot~e natiQq~t peak in drunk ~ijyqig eJifdrcement

activityoccurre4 in 19~~when aInt0st 2 iliiJli~ii Pt~ple - approxjmiddotmately ti2 percent~o the nations li~enSeddrivers ~ were

middotarreste4IoJmiddotdrtintltdriving Nevertheless t~e Natio~~rligh~ymiddotSafety Admilfs~ration~stimateS hat even during the p~k years of enforcement police nati6DaIiyapprehendedmiddot only 1out 0(500 people who wercdriving under theinfluence of alcohol atamiddotgiven time

According to infonnatiol1 frtgtm the Office of the Commissioner of Probation enforcement in Massachusetts peaked a little later than

Nichols JL and Ross HL Th~ Eff~elivtM$$ 0 Saneiomor DWI Oftndns paper presented at the International Conference on Alcohol Drugs and Traffic Safety October 1989 Chica80 Illinois

204 CMR 403 adopted December 10 1984

-~

c

--

~

lt

gt ~

- gt

01

19 bull 1 I

39~9i2 - UOS~ 31~1700 40251100

79l

180

SENATE shy No 1900

I ~

~ IS74 - 2S87 I

291C)ooQ - i 36414oo

~

DUlIAreSh ric~sed Driv~n

1990]

Amiddotti~t Rate per ~ ~ l~~DriYers J 1~B7 shy 710 ~

r - 1 ~- ~+ - - - ri

- SO~e ~n~tC P~st- _AUdit and~v~iBht

r-~-middotgt7~ bull ~ ~ ~ 1~ ~ ~

i~gsc~ gt middotOL gt bull bull _ Themes~iratcdncrea$ed263 percent from 1970 to 1984 from

~ shy ~- iai~~lO bull~ariestsptriOOoIicen$eddrivers~~-_ ~ _~ ~~lmiddot ~ ~ gtshy bullbull - __

_ ~ - Be~weiit198()-and 1984 -~he drunk driving arrest raie rose 47 ~ bull ~tf1~t 4 _ bull bull bull - 1

pei~nt ~9ntiiluingt~e~PQsitivetrerid established-d~g the two S p~e~~pifii~yearpeii~ds - shy gt - -~ S~t~84~~arre$ti~t~ h~ d~cIined 24 percent

Tfi~~ii~tff~t~~t-i~OOo licensed 4rivers ini989 (791) is only gt 1pound~nffil8her tbijiit~e i98() rate~_ -T

_ ~middot~--I ~ - 1 _ ~ bull bull bull ~ thF~ ~~~com~tmg explanatio~ for the 24PerCent~c=Crease in drnlt~t~g~Cyentivitysince 1984The t-rstexp~tion

favoi~qbYanu~ber-ofpoJice admiJiistrators is that P8st~nforcement and acfjap2eindQver bChavi()r ~ responsible for the CI~rCaSing rate of aq~$(~~ According to th~ theQry there are f~w~~altestsbecause past enforcement efforts-have successfully deterred d~ driving so

that there are fewer drunk drivers on the roads to apprehend There have not been any local studies to test this explanation~ but few safety experts have been willing to accept this type of anecdotal data on face value

19

1shy

1

1 I

~_ bullbull

~

j -

SENATE ~ No~ 1900 December

Acts of 1961 Chapter 340

14 MGl Chapter 90 Section 24f

1990) 1 lt SENATE ~ Nol900 _

-~~ ~

~i -

PenUllog Drunk Drivers

The Massachusetts system for penalizingdunk drivers includes middotlicense suspensions or revocations fines education and treatment and incarceration The penalties are graduated into three main steps such that theybecome increasingly intensive and they are determined

IS Digesl of Slale Alcohol Highway SafelY Relaled Regulalion eighth edition National Highway Traffic Safety Association

11

- ~

gt SENATE shy No 1900

-

~

[December

~

gt

See Acts of 1982 Chapter 373

c

13

i

- f -- ~ _ gt bull $ -

~i~-~~(~~ ~ ~ ~~ middot(Jey FW4iDgS~ ~ -

- ~_~ _~ ~~ ~ g- ~~ 1__ I bull J

bull ASS1~~~nts-to middotir8t offender programs hv~middot d~crea$ed 20 perceilrsincefis~aLyear 1985i mirroringJh~~~hllng auest tate

bull A~sigriments to the second ~ffenders piogr~~h~lV~deereaSed bull lo _ (

but te-middotdeclirie~has not been as sharp-as fQrthe first offender

(- ~ J)rosr~~ -~ imiddot cmiddotbullbull ~~-- r middotltThe Departme~t of Public 9f Health r~portsltthat while the

frequenCy o~adtni$~i()ns to th~ 14-day trtmen~J)r()gram has middotdecreasedover the last~five years~the demographic cJtaracteristics of fitstand $~cond offender drunk dovers have rem~ined fairly cOnstant includingtheir aver~ge age (approximately 31 ye~s)middot Furthermore inmiddot 1989 when there-were 33709 arrests 2550 drtink drivers (76 percentwent to jail in 1984 when 39912 drunk drivers were arrested 2006 of them were sent to jail (50 percent)

bull bullbull bull

17

~

~ middotc~)middotmiddot ~

~

- gt ~ -ilt c

-

bull gt

accur~~y

SENATE No~ -1900

[December - -1

sECnorit~REE I~~VESIN ~IMPLtEi)CONSENT J - po ~ _ --- ro bull

Int~ s~ctio~iof- themiddotr~o~ve 10~ka M~sa~hu~itS~ experience withf~tiilg for~lPt~xication~ nctthe implied conselli law Wcentthen e~amirttlieinw~~f~e~~~p~6(J~~ li~ on~~ain~s aDdmiddot~nmiddot

Ul~eqr~~ineDt ~syst~in ~a~~()Y~~1detltifY thieemiddotprD~~erils with - ~hcentJa~~s~tnp~~~atiQ~th~q~ngmiddoti~reflS~middotrat~1ui1ohgdet8iJl~s

middotmiddot(middot~~middotfP~~~q~I~~ac~~e~~~t~cen~e~sus~~i~~(~h~~~ ~hp ~emiddotil1e- test and faiJ~middot~iidfinaJI~tl1flack9fjdequat~iecoidsmiddotQllwhether the test was iidfu1nister~accepted middotormiddotfCieetectmiddot gt

~~~~jgtt~middotc~-ltmiddot TJ~(~ic~aeY9f1Ji~Tests ~

~7 bullbullbulll-~ - _ bull bull _ - _

Th~i~ middotis-inc~~~g evidencif that th~ tcentst pr~ltUresin place in yen$~U~~t~~u~e_lair pJa-yXor ttSt)~bjects~ft~ tb~tmiddotth~ infrared

iDaelJll~~ reqqired by the~w are accuratecanci teliable In what is ~~~~pg~I~~~~k c~e-in~~e fi~Ilt4Sat~ 6fJV~~Je~se~ v Andrew l)omiddot~m~ et ~l~Jle Supreme Co~ of ~~wJeJSeyhel4~tpat ~ch tes~~

~~c~~~~~~~~in~ ~gt ~ ~~~~ gt ~ ~ We-areconfiaenn~tcontInti~useoftheb~atfW~rwjllnot lead to unjustmiddot~~~vleti9~-The ~le~~ ~deii~ IS m9tet9ii~1~ive now t~tve(iliat ~e cbilQCe$of-ove~ti~m~tjonmiddot are ~Jaotdnarily ~

sm~l1middotmiddot middot ~fTbe b~ath~~er ismiddotmiddot)i~asSedin -i~ cQinbined pr~~ticalitymiddotmiddotampil4 use~~ssh em OJ he low side 111 a sl8nficant nu~ber ofcases in-order not to overestimate bloodmiddotatcoholin the

middotmiddotgreaies~j)ossibenumoer OfC8Ses~ Wi~e~ ~Vinlted this ~jusifiable middotmiddotiifltgtr4~r to furthermiddot the legislatures wilt ~rid middotmaiDtmefficiency in cmiddot

oiu~ystemQtJustiCeP ~ _ lt1middot~~middotmiddotmiddotmiddot ~t~ ~ ~ -~~ - -- ~

TheVqwnie tilSe is especially valu~bl~ ~ec~use ~lt)stl9f tJte leading expert~lp the ftefd~pPearcentd and teslifiea5othaftheNew Jersey court had tliebeilefjLofan extraordinarily comigtlet~ ~cord uponwhich to base ~its decision The Downie case reduCes concerns about the

and ~reliability of the breath~test middotJlJachines ~urTentIy permitted by MaSsachusetts law ~- ~

The ieliabiii~y of current technology is beco~ngless of an issue Deliberations jQ Massachusetts can ther~fore f~cus on whether the state wants accurate evidence of alcohol impairment and to what extent it wants such evidence not how the test is administered or whether it is accurate

Stall of Nlw Jersey v Andrew Downie e al 569 A2d 242 (NJ 1990) page 251

25

r J I

bull ~J~i~t Ri ~ gt i~mrmiddot1 ~ middoti~~~~ lt~~~~~$ ~~ ~~~a~~mber) (lIe~fet) middotSiilpeDsl~as ~UI~~its~Cn$ 1

- middot~I986~ middot38iO~9middot - 9449 middot2S NA J I middotmiddott~~l~ t~a8J66o c ~~ 13510 36 2608C)middotd

middotmiddotI~~~J~ i~~~~l~ 3~C ~~ml

1middotgt~~atePcrst A~(iifil~CI oVCrsi8h middott cStima te ~ ~ -I

sect~lIlc MA~J5~centlsirY ~pdotor ~Chi~ICS _ ~l I ~~ gt1 i

~ 1

Ij~~~~~~ qgt ~~~ceJ986~middott~ep~rC~iltage of pe~onsr~fus1Dg~o J~e a breath

orJ)loOd~tes( aft~r arrest for drunk dtiving hasJncreased 44 - p~~~n~lrising f~Qll2S percent to 36 ~rc~rttlt

middot ltOut of33imiddot7~ p~~pl~ -yenr~ted -fo~ dru~dri~i~gj~Massachushy 0 middotsettsciuiiJig-198~12279people refused to take abfeath or blood test -and~()nly U~639 actually took a breath ormiddot bl~od test arter ~ JliTestmiddotmiddot -

bull Registry ~tMotor Vehicles and Office of Alcohol Testing reports do not indicate and cannot account for whether or not 9791 of the states 23918 dnitlk driving offendersin- 1989 were offered a breath or blood testand whether they took or refusedihat test

26 SENATE - No 1900 [December

Ie Of the 11639 offenders who consentedmiddott~ a ~~eath or biood test in 1989o~y6998 haeJ theirJicensessus~middotnded under the provi- sionS of~he-~aamimstraiivePerse role

There ~r~-three~~se~o~ pr~bienis jItlieM~~~b~~etts implied consent ~trategy Firsimany offellders are tefusittjto take a test

~ 1~~~~~~~1~~~~ ~t~~ t~1~~4la~e~~e~ fir~t offe~ders ar~~~soretusing~o t~eth~eSF D~ng thepcriodlt

froQll9ampampto-1982)ii~)1mrber of people refuSing teiake the test has rise~ 44 p~r~ent froJl2S percent of those aITested1t) -36 percent of

those arrested gt ~ - bullbull

~ The iniat~forinfor first a~d ~~c~rilaquo(offe~(etproampraritsoffermiddot middot8ddtiQna~vid~Jice- diat the proportion or-clients refUsing middotto take a

~br~at~ tcentsectt~~ter middotmiddot~IT~~tmiddot ~as risen sharply Alice~ t981 andsecond p~ngers il~e)nu~h~orelikeryo refus~ to take~he middottestmiddot During

calepdar ~~rmiddot1989~ percent ~f the second- offendcrs ad~tted to the i4-ltiyiJogran1reported thalt~ey hadiefus~to take abreath

~ bull 0 bull _ bull bull

test c()mp~ to a 33 percent nite for flr$t~offen4eIS ~ The CoDinu)nwealtIj therefore~ must prosecute 8Imost two-thirds

of its drunk drivers without scientific eViden~ - cd imp8irment Mo~eover~J~e pr~s~~i~penalty structure is~i~~ffecii~e~I~ca~mgthe

vast majorityof dninkdrivers to ~onsend~the ~r~th t~~t Second roughly oile-tbird ofthosewhp~taketb-e bteatbmiddot test and

arefoundtohave alllgh blood aicohol conce~tratioiaren~(getting their licenses suspended Of the 33709 peopie ~~lor drunk driving in MaJossachusetts duIjng 1989 onlyOne-third were documentedHo havetaken a blood alcoh()tteStaftetartestOf those who were dricume~ied to have taken the test (rQtU the Commonshywealths testing experience we could estimate tha~IO800 of these individuals would have had a blood level conCentration of at least 010)8 However datfl from the Registry of Mot~~ Vehicles show that only 6998 persons were suspended under the middotmiddotadininistrative per se provisions All 10800 of those who would have tested above 010 percent however would have been subject to an immediate license

Accordinl to data from the Office of Alcohol Testing only 63 percent of those persons tested durin fiscal year 1989 and 62 percent of those per50m tested during fISCal year 1990 recorded test results of

BACs below 010 percent Given these results it is likely that of the 11639 tests administered in 19Z9 10800 would have BACs higher than 010 percent

SENATE - No 1900 27

suspension 81 aiJai~~e~~there is no ~1earieasonfor the states failuftnO suspen(J the licenSes of Offenders Th~third pio~~em W(~hthe statesimplementatlonoftbe implied

~ consent law is~lli~p~o~ie~tr~cor4 ~eep~ng p1cent riu~ber of people who refuse thehteath~iYi~fan(fthosewho takethe test~c~ouni for only10S perCcent~t9(tat~~~~irestslt ~~very ~isl~rbi~g t~~t_ the state ~l~0~acc9ui1~fqr~t~qpL~Opercent ~I itscaSeSltt~~ ~ gt~_

Sorn~Qf-tht(~uiirepq~~d casestn~y~ hav~ bcent~J)middot~p cit~~mstaJices wheii~~~poli~~iriad(~aij~~ts gtwithOut offerbigtbe tesi niis oCcurs

-J ~ r middot~middotmiddot-i~ middotr~ - __ r - - - -

wh~~ ~secteCp~~~ofic~r ~~np( ~v~ljPJ~ t~_ ~it_n~~~~h~ ~esliHr wheremiddot thercent it~no qualifiedbreadttest oper~tor prese1itcFhi~oC(ursmore

middot~~ f ~ ~ bull - bull ~ bullbull J - - bullbull ~ _ j J bull bull _ bull bullbullbullbull shy

fr~qu~ritlYin_~PIaJ~r~pat1ments Tlielaw r~quir~llfa(iirtJl~)vent

thatt~~lis~~J~fu~~~gta-~cp~~ical test- wh~n~qqe~ted tli~ officer L~c Jiii~gfli~treq~~sfsli~lf~piJllediately prepar~ a~ptfenlepqFrof s1ch ~ ~ ~ jrrefusaIarid~ thtfthis r~phifmust bet end()rseltt6y~tliirdpeison ~who -~~-~~bad i~iiesseltl jJ1~refu~Waowever~hetej~nsect Way Q~o~what _-

r ~ tOpartQfJhe 30middotpe~ntojdie unreported casesis1111Ci tQ t~i~Teason~2o lt gtj q ~ltmiddotgtgtigt lt ~-

~ ~i~ SECT10N FO_~ s~~~~~y ANDRECO~~~~J~r~~N~ Cle~rly the G6Q1ni~n~ealths comQ1itDen( ~~diu~~ driving ~iet1tnce hasti~n i~~oya~~~e s~bst~tial~a~~ sfifssf~~Glt~n~es

10 law~ and recentc()urt de~ls10ns aff~tm~ ltabiAty~for d(Unk dnv10g -accid~iltShave h~(f asigl~ant influence on red~~iiig~r11nk4riving as diq iip~reAAe~rl~welif()rcenient The Com~dilw~a~li~s~~uccess is

also ~itti~utahdo strongpuhlic awareness andconce51L~(ltliedeshydine indrinkll)g~~and thechanging demographicsOf (lie dpving popuI~tion middotfmiddot

Alsltgt in spiie6f noticeable decreases in sevetal~n1nk driving countermeasuresduring tlle latter years of the decade state efforts to deter and identify drunk driving during the years 1980~to 1989 far surpassed the efforts made in the preceding decade (see Table V)

9 MGL Chapter 90 Section 24(1)

20 The Commonwealth must address the problem of circumstances arising when there is no witness to a test Just as local fire departments frequently rely on mutual assistance from other communities police departments must make arrangements for mutunl aid cr for centrJlizeltesting of drunk drivers especially in the more rural areas of the state

II

2

~d~e~~~~if~er

beh~viq~~middotl

~fjmiddot~tftJlt

~r i-est~a~Cmiddotmiddot

-

~~ tmiddot ~ gt _

~

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-~~0--middot~middot

bull ~statisti~y~o

_-0 ~ lt - _ bull ~

~NATE - No 1900 17 - -

~ Thejn~~nto(TheSAre ROad~A~t was to make adjuditati~nfor drunk an~tmiddotmiddotmak(Pe~aIties more middot~~middot~bl f~t as recentmiddot

anaJYl~~~tof~d~8teth~middot~sutanc~tHatjudamp~entwQ~ld~_swift anti~e~ri is th(~O~L~n~~iye Yay t9 b~ve C JJipact ~n p~blic

~~~ ~lt -Yo ~ ~ gt lt~ loJ~~l~~y1 ~~Os~publiccoricepi a~o~tdmiddot(lnkijriyeningalS() affected

themiddotat~fdes~~(ineP911middotmiddot~4 tli~ltc~uits~~t~i)Yete~atlve ~~4~~k~~~tiyen~~ )~i(jii~r ~oi~pletpeni ne~rsfrae~~sUcl1 ~ tbe use

~gmiddotmiddotmiddotoa~ltmiddotbl~Cksmiddot and t~e 4~fjsi()n ~y tlie-Al~o1ionc B~~~tg~~~h~~lComm~iop 0 cuit~ ~~a~ho~~_ inD~ arid re$iauTl1ifS1i~~Qr~bvet middot~coJJrtmiddotmiddotdeciSio~s i~g~ng the liability of i)i~If~(di~ts)or~~iVing dnDJier-s Wh~) w~resugtseqiently jnvolJdin ~ authmof)J1~~t8$lje~ middotht4t ~ siPmcant imp~t on the willingnessmiddotor cortimercW est~blis1iIDentS~ middottomiddot serve aicohol1c ~veragesmiddotmiddot without

~ r~middotmiddotltmiddot ~ t

~-~~~ ~ ~ ~ ~ middotfmiddot

middotbthermiddot~9wlteftn~UreS ApiDStmiddotD~priverS _-~_ ~~ ) p $ ~ p -

Inere~gpubli~concemmiddotapout drunkdriving alsolcentd to a~tronger

fOcuS-bnihe c(ninterii1eaSutes~aicen to limit druDk~diivihg during the - _ HI _ ~~ 1 - bull

1980sinese-ine~i~ tyigti~ally fall into ~hreemyenn categ~ries gt ~~uilkdtiveis olt~~g eVidencemiddot thil~middotth~s-e d~Veis ~

~tuanydrunk ~~rpe~aliiingdrun~ drivers ~ i_ ~)r0 ~

Dr~tirivJDI ~ri~s ~

jUs~ ~~the s~atjsilcsmiddotdein~nstrate a dr~p in drrinkdriyh-tg~actiyity iiid)catethafdrunk drivingarrests fell off dildng the

past d~caa~A~~rdjJigmiddot ~t~~ t~e middotNatioJial HighwayTtaffic-$8fety Admipl~iiati~iJ~middotmiddot~e natiQq~t peak in drunk ~ijyqig eJifdrcement

activityoccurre4 in 19~~when aInt0st 2 iliiJli~ii Pt~ple - approxjmiddotmately ti2 percent~o the nations li~enSeddrivers ~ were

middotarreste4IoJmiddotdrtintltdriving Nevertheless t~e Natio~~rligh~ymiddotSafety Admilfs~ration~stimateS hat even during the p~k years of enforcement police nati6DaIiyapprehendedmiddot only 1out 0(500 people who wercdriving under theinfluence of alcohol atamiddotgiven time

According to infonnatiol1 frtgtm the Office of the Commissioner of Probation enforcement in Massachusetts peaked a little later than

Nichols JL and Ross HL Th~ Eff~elivtM$$ 0 Saneiomor DWI Oftndns paper presented at the International Conference on Alcohol Drugs and Traffic Safety October 1989 Chica80 Illinois

204 CMR 403 adopted December 10 1984

-~

c

--

~

lt

gt ~

- gt

01

19 bull 1 I

39~9i2 - UOS~ 31~1700 40251100

79l

180

SENATE shy No 1900

I ~

~ IS74 - 2S87 I

291C)ooQ - i 36414oo

~

DUlIAreSh ric~sed Driv~n

1990]

Amiddotti~t Rate per ~ ~ l~~DriYers J 1~B7 shy 710 ~

r - 1 ~- ~+ - - - ri

- SO~e ~n~tC P~st- _AUdit and~v~iBht

r-~-middotgt7~ bull ~ ~ ~ 1~ ~ ~

i~gsc~ gt middotOL gt bull bull _ Themes~iratcdncrea$ed263 percent from 1970 to 1984 from

~ shy ~- iai~~lO bull~ariestsptriOOoIicen$eddrivers~~-_ ~ _~ ~~lmiddot ~ ~ gtshy bullbull - __

_ ~ - Be~weiit198()-and 1984 -~he drunk driving arrest raie rose 47 ~ bull ~tf1~t 4 _ bull bull bull - 1

pei~nt ~9ntiiluingt~e~PQsitivetrerid established-d~g the two S p~e~~pifii~yearpeii~ds - shy gt - -~ S~t~84~~arre$ti~t~ h~ d~cIined 24 percent

Tfi~~ii~tff~t~~t-i~OOo licensed 4rivers ini989 (791) is only gt 1pound~nffil8her tbijiit~e i98() rate~_ -T

_ ~middot~--I ~ - 1 _ ~ bull bull bull ~ thF~ ~~~com~tmg explanatio~ for the 24PerCent~c=Crease in drnlt~t~g~Cyentivitysince 1984The t-rstexp~tion

favoi~qbYanu~ber-ofpoJice admiJiistrators is that P8st~nforcement and acfjap2eindQver bChavi()r ~ responsible for the CI~rCaSing rate of aq~$(~~ According to th~ theQry there are f~w~~altestsbecause past enforcement efforts-have successfully deterred d~ driving so

that there are fewer drunk drivers on the roads to apprehend There have not been any local studies to test this explanation~ but few safety experts have been willing to accept this type of anecdotal data on face value

19

1shy

1

1 I

~_ bullbull

~

j -

SENATE ~ No~ 1900 December

Acts of 1961 Chapter 340

14 MGl Chapter 90 Section 24f

1990) 1 lt SENATE ~ Nol900 _

-~~ ~

~i -

PenUllog Drunk Drivers

The Massachusetts system for penalizingdunk drivers includes middotlicense suspensions or revocations fines education and treatment and incarceration The penalties are graduated into three main steps such that theybecome increasingly intensive and they are determined

IS Digesl of Slale Alcohol Highway SafelY Relaled Regulalion eighth edition National Highway Traffic Safety Association

11

- ~

gt SENATE shy No 1900

-

~

[December

~

gt

See Acts of 1982 Chapter 373

c

13

i

- f -- ~ _ gt bull $ -

~i~-~~(~~ ~ ~ ~~ middot(Jey FW4iDgS~ ~ -

- ~_~ _~ ~~ ~ g- ~~ 1__ I bull J

bull ASS1~~~nts-to middotir8t offender programs hv~middot d~crea$ed 20 perceilrsincefis~aLyear 1985i mirroringJh~~~hllng auest tate

bull A~sigriments to the second ~ffenders piogr~~h~lV~deereaSed bull lo _ (

but te-middotdeclirie~has not been as sharp-as fQrthe first offender

(- ~ J)rosr~~ -~ imiddot cmiddotbullbull ~~-- r middotltThe Departme~t of Public 9f Health r~portsltthat while the

frequenCy o~adtni$~i()ns to th~ 14-day trtmen~J)r()gram has middotdecreasedover the last~five years~the demographic cJtaracteristics of fitstand $~cond offender drunk dovers have rem~ined fairly cOnstant includingtheir aver~ge age (approximately 31 ye~s)middot Furthermore inmiddot 1989 when there-were 33709 arrests 2550 drtink drivers (76 percentwent to jail in 1984 when 39912 drunk drivers were arrested 2006 of them were sent to jail (50 percent)

bull bullbull bull

17

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~ middotc~)middotmiddot ~

~

- gt ~ -ilt c

-

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accur~~y

SENATE No~ -1900

[December - -1

sECnorit~REE I~~VESIN ~IMPLtEi)CONSENT J - po ~ _ --- ro bull

Int~ s~ctio~iof- themiddotr~o~ve 10~ka M~sa~hu~itS~ experience withf~tiilg for~lPt~xication~ nctthe implied conselli law Wcentthen e~amirttlieinw~~f~e~~~p~6(J~~ li~ on~~ain~s aDdmiddot~nmiddot

Ul~eqr~~ineDt ~syst~in ~a~~()Y~~1detltifY thieemiddotprD~~erils with - ~hcentJa~~s~tnp~~~atiQ~th~q~ngmiddoti~reflS~middotrat~1ui1ohgdet8iJl~s

middotmiddot(middot~~middotfP~~~q~I~~ac~~e~~~t~cen~e~sus~~i~~(~h~~~ ~hp ~emiddotil1e- test and faiJ~middot~iidfinaJI~tl1flack9fjdequat~iecoidsmiddotQllwhether the test was iidfu1nister~accepted middotormiddotfCieetectmiddot gt

~~~~jgtt~middotc~-ltmiddot TJ~(~ic~aeY9f1Ji~Tests ~

~7 bullbullbulll-~ - _ bull bull _ - _

Th~i~ middotis-inc~~~g evidencif that th~ tcentst pr~ltUresin place in yen$~U~~t~~u~e_lair pJa-yXor ttSt)~bjects~ft~ tb~tmiddotth~ infrared

iDaelJll~~ reqqired by the~w are accuratecanci teliable In what is ~~~~pg~I~~~~k c~e-in~~e fi~Ilt4Sat~ 6fJV~~Je~se~ v Andrew l)omiddot~m~ et ~l~Jle Supreme Co~ of ~~wJeJSeyhel4~tpat ~ch tes~~

~~c~~~~~~~~in~ ~gt ~ ~~~~ gt ~ ~ We-areconfiaenn~tcontInti~useoftheb~atfW~rwjllnot lead to unjustmiddot~~~vleti9~-The ~le~~ ~deii~ IS m9tet9ii~1~ive now t~tve(iliat ~e cbilQCe$of-ove~ti~m~tjonmiddot are ~Jaotdnarily ~

sm~l1middotmiddot middot ~fTbe b~ath~~er ismiddotmiddot)i~asSedin -i~ cQinbined pr~~ticalitymiddotmiddotampil4 use~~ssh em OJ he low side 111 a sl8nficant nu~ber ofcases in-order not to overestimate bloodmiddotatcoholin the

middotmiddotgreaies~j)ossibenumoer OfC8Ses~ Wi~e~ ~Vinlted this ~jusifiable middotmiddotiifltgtr4~r to furthermiddot the legislatures wilt ~rid middotmaiDtmefficiency in cmiddot

oiu~ystemQtJustiCeP ~ _ lt1middot~~middotmiddotmiddotmiddot ~t~ ~ ~ -~~ - -- ~

TheVqwnie tilSe is especially valu~bl~ ~ec~use ~lt)stl9f tJte leading expert~lp the ftefd~pPearcentd and teslifiea5othaftheNew Jersey court had tliebeilefjLofan extraordinarily comigtlet~ ~cord uponwhich to base ~its decision The Downie case reduCes concerns about the

and ~reliability of the breath~test middotJlJachines ~urTentIy permitted by MaSsachusetts law ~- ~

The ieliabiii~y of current technology is beco~ngless of an issue Deliberations jQ Massachusetts can ther~fore f~cus on whether the state wants accurate evidence of alcohol impairment and to what extent it wants such evidence not how the test is administered or whether it is accurate

Stall of Nlw Jersey v Andrew Downie e al 569 A2d 242 (NJ 1990) page 251

25

r J I

bull ~J~i~t Ri ~ gt i~mrmiddot1 ~ middoti~~~~ lt~~~~~$ ~~ ~~~a~~mber) (lIe~fet) middotSiilpeDsl~as ~UI~~its~Cn$ 1

- middot~I986~ middot38iO~9middot - 9449 middot2S NA J I middotmiddott~~l~ t~a8J66o c ~~ 13510 36 2608C)middotd

middotmiddotI~~~J~ i~~~~l~ 3~C ~~ml

1middotgt~~atePcrst A~(iifil~CI oVCrsi8h middott cStima te ~ ~ -I

sect~lIlc MA~J5~centlsirY ~pdotor ~Chi~ICS _ ~l I ~~ gt1 i

~ 1

Ij~~~~~~ qgt ~~~ceJ986~middott~ep~rC~iltage of pe~onsr~fus1Dg~o J~e a breath

orJ)loOd~tes( aft~r arrest for drunk dtiving hasJncreased 44 - p~~~n~lrising f~Qll2S percent to 36 ~rc~rttlt

middot ltOut of33imiddot7~ p~~pl~ -yenr~ted -fo~ dru~dri~i~gj~Massachushy 0 middotsettsciuiiJig-198~12279people refused to take abfeath or blood test -and~()nly U~639 actually took a breath ormiddot bl~od test arter ~ JliTestmiddotmiddot -

bull Registry ~tMotor Vehicles and Office of Alcohol Testing reports do not indicate and cannot account for whether or not 9791 of the states 23918 dnitlk driving offendersin- 1989 were offered a breath or blood testand whether they took or refusedihat test

26 SENATE - No 1900 [December

Ie Of the 11639 offenders who consentedmiddott~ a ~~eath or biood test in 1989o~y6998 haeJ theirJicensessus~middotnded under the provi- sionS of~he-~aamimstraiivePerse role

There ~r~-three~~se~o~ pr~bienis jItlieM~~~b~~etts implied consent ~trategy Firsimany offellders are tefusittjto take a test

~ 1~~~~~~~1~~~~ ~t~~ t~1~~4la~e~~e~ fir~t offe~ders ar~~~soretusing~o t~eth~eSF D~ng thepcriodlt

froQll9ampampto-1982)ii~)1mrber of people refuSing teiake the test has rise~ 44 p~r~ent froJl2S percent of those aITested1t) -36 percent of

those arrested gt ~ - bullbull

~ The iniat~forinfor first a~d ~~c~rilaquo(offe~(etproampraritsoffermiddot middot8ddtiQna~vid~Jice- diat the proportion or-clients refUsing middotto take a

~br~at~ tcentsectt~~ter middotmiddot~IT~~tmiddot ~as risen sharply Alice~ t981 andsecond p~ngers il~e)nu~h~orelikeryo refus~ to take~he middottestmiddot During

calepdar ~~rmiddot1989~ percent ~f the second- offendcrs ad~tted to the i4-ltiyiJogran1reported thalt~ey hadiefus~to take abreath

~ bull 0 bull _ bull bull

test c()mp~ to a 33 percent nite for flr$t~offen4eIS ~ The CoDinu)nwealtIj therefore~ must prosecute 8Imost two-thirds

of its drunk drivers without scientific eViden~ - cd imp8irment Mo~eover~J~e pr~s~~i~penalty structure is~i~~ffecii~e~I~ca~mgthe

vast majorityof dninkdrivers to ~onsend~the ~r~th t~~t Second roughly oile-tbird ofthosewhp~taketb-e bteatbmiddot test and

arefoundtohave alllgh blood aicohol conce~tratioiaren~(getting their licenses suspended Of the 33709 peopie ~~lor drunk driving in MaJossachusetts duIjng 1989 onlyOne-third were documentedHo havetaken a blood alcoh()tteStaftetartestOf those who were dricume~ied to have taken the test (rQtU the Commonshywealths testing experience we could estimate tha~IO800 of these individuals would have had a blood level conCentration of at least 010)8 However datfl from the Registry of Mot~~ Vehicles show that only 6998 persons were suspended under the middotmiddotadininistrative per se provisions All 10800 of those who would have tested above 010 percent however would have been subject to an immediate license

Accordinl to data from the Office of Alcohol Testing only 63 percent of those persons tested durin fiscal year 1989 and 62 percent of those per50m tested during fISCal year 1990 recorded test results of

BACs below 010 percent Given these results it is likely that of the 11639 tests administered in 19Z9 10800 would have BACs higher than 010 percent

SENATE - No 1900 27

suspension 81 aiJai~~e~~there is no ~1earieasonfor the states failuftnO suspen(J the licenSes of Offenders Th~third pio~~em W(~hthe statesimplementatlonoftbe implied

~ consent law is~lli~p~o~ie~tr~cor4 ~eep~ng p1cent riu~ber of people who refuse thehteath~iYi~fan(fthosewho takethe test~c~ouni for only10S perCcent~t9(tat~~~~irestslt ~~very ~isl~rbi~g t~~t_ the state ~l~0~acc9ui1~fqr~t~qpL~Opercent ~I itscaSeSltt~~ ~ gt~_

Sorn~Qf-tht(~uiirepq~~d casestn~y~ hav~ bcent~J)middot~p cit~~mstaJices wheii~~~poli~~iriad(~aij~~ts gtwithOut offerbigtbe tesi niis oCcurs

-J ~ r middot~middotmiddot-i~ middotr~ - __ r - - - -

wh~~ ~secteCp~~~ofic~r ~~np( ~v~ljPJ~ t~_ ~it_n~~~~h~ ~esliHr wheremiddot thercent it~no qualifiedbreadttest oper~tor prese1itcFhi~oC(ursmore

middot~~ f ~ ~ bull - bull ~ bullbull J - - bullbull ~ _ j J bull bull _ bull bullbullbullbull shy

fr~qu~ritlYin_~PIaJ~r~pat1ments Tlielaw r~quir~llfa(iirtJl~)vent

thatt~~lis~~J~fu~~~gta-~cp~~ical test- wh~n~qqe~ted tli~ officer L~c Jiii~gfli~treq~~sfsli~lf~piJllediately prepar~ a~ptfenlepqFrof s1ch ~ ~ ~ jrrefusaIarid~ thtfthis r~phifmust bet end()rseltt6y~tliirdpeison ~who -~~-~~bad i~iiesseltl jJ1~refu~Waowever~hetej~nsect Way Q~o~what _-

r ~ tOpartQfJhe 30middotpe~ntojdie unreported casesis1111Ci tQ t~i~Teason~2o lt gtj q ~ltmiddotgtgtigt lt ~-

~ ~i~ SECT10N FO_~ s~~~~~y ANDRECO~~~~J~r~~N~ Cle~rly the G6Q1ni~n~ealths comQ1itDen( ~~diu~~ driving ~iet1tnce hasti~n i~~oya~~~e s~bst~tial~a~~ sfifssf~~Glt~n~es

10 law~ and recentc()urt de~ls10ns aff~tm~ ltabiAty~for d(Unk dnv10g -accid~iltShave h~(f asigl~ant influence on red~~iiig~r11nk4riving as diq iip~reAAe~rl~welif()rcenient The Com~dilw~a~li~s~~uccess is

also ~itti~utahdo strongpuhlic awareness andconce51L~(ltliedeshydine indrinkll)g~~and thechanging demographicsOf (lie dpving popuI~tion middotfmiddot

Alsltgt in spiie6f noticeable decreases in sevetal~n1nk driving countermeasuresduring tlle latter years of the decade state efforts to deter and identify drunk driving during the years 1980~to 1989 far surpassed the efforts made in the preceding decade (see Table V)

9 MGL Chapter 90 Section 24(1)

20 The Commonwealth must address the problem of circumstances arising when there is no witness to a test Just as local fire departments frequently rely on mutual assistance from other communities police departments must make arrangements for mutunl aid cr for centrJlizeltesting of drunk drivers especially in the more rural areas of the state

c

--

~

lt

gt ~

- gt

01

19 bull 1 I

39~9i2 - UOS~ 31~1700 40251100

79l

180

SENATE shy No 1900

I ~

~ IS74 - 2S87 I

291C)ooQ - i 36414oo

~

DUlIAreSh ric~sed Driv~n

1990]

Amiddotti~t Rate per ~ ~ l~~DriYers J 1~B7 shy 710 ~

r - 1 ~- ~+ - - - ri

- SO~e ~n~tC P~st- _AUdit and~v~iBht

r-~-middotgt7~ bull ~ ~ ~ 1~ ~ ~

i~gsc~ gt middotOL gt bull bull _ Themes~iratcdncrea$ed263 percent from 1970 to 1984 from

~ shy ~- iai~~lO bull~ariestsptriOOoIicen$eddrivers~~-_ ~ _~ ~~lmiddot ~ ~ gtshy bullbull - __

_ ~ - Be~weiit198()-and 1984 -~he drunk driving arrest raie rose 47 ~ bull ~tf1~t 4 _ bull bull bull - 1

pei~nt ~9ntiiluingt~e~PQsitivetrerid established-d~g the two S p~e~~pifii~yearpeii~ds - shy gt - -~ S~t~84~~arre$ti~t~ h~ d~cIined 24 percent

Tfi~~ii~tff~t~~t-i~OOo licensed 4rivers ini989 (791) is only gt 1pound~nffil8her tbijiit~e i98() rate~_ -T

_ ~middot~--I ~ - 1 _ ~ bull bull bull ~ thF~ ~~~com~tmg explanatio~ for the 24PerCent~c=Crease in drnlt~t~g~Cyentivitysince 1984The t-rstexp~tion

favoi~qbYanu~ber-ofpoJice admiJiistrators is that P8st~nforcement and acfjap2eindQver bChavi()r ~ responsible for the CI~rCaSing rate of aq~$(~~ According to th~ theQry there are f~w~~altestsbecause past enforcement efforts-have successfully deterred d~ driving so

that there are fewer drunk drivers on the roads to apprehend There have not been any local studies to test this explanation~ but few safety experts have been willing to accept this type of anecdotal data on face value

19

1shy

1

1 I

~_ bullbull

~

j -

SENATE ~ No~ 1900 December

Acts of 1961 Chapter 340

14 MGl Chapter 90 Section 24f

1990) 1 lt SENATE ~ Nol900 _

-~~ ~

~i -

PenUllog Drunk Drivers

The Massachusetts system for penalizingdunk drivers includes middotlicense suspensions or revocations fines education and treatment and incarceration The penalties are graduated into three main steps such that theybecome increasingly intensive and they are determined

IS Digesl of Slale Alcohol Highway SafelY Relaled Regulalion eighth edition National Highway Traffic Safety Association

11

- ~

gt SENATE shy No 1900

-

~

[December

~

gt

See Acts of 1982 Chapter 373

c

13

i

- f -- ~ _ gt bull $ -

~i~-~~(~~ ~ ~ ~~ middot(Jey FW4iDgS~ ~ -

- ~_~ _~ ~~ ~ g- ~~ 1__ I bull J

bull ASS1~~~nts-to middotir8t offender programs hv~middot d~crea$ed 20 perceilrsincefis~aLyear 1985i mirroringJh~~~hllng auest tate

bull A~sigriments to the second ~ffenders piogr~~h~lV~deereaSed bull lo _ (

but te-middotdeclirie~has not been as sharp-as fQrthe first offender

(- ~ J)rosr~~ -~ imiddot cmiddotbullbull ~~-- r middotltThe Departme~t of Public 9f Health r~portsltthat while the

frequenCy o~adtni$~i()ns to th~ 14-day trtmen~J)r()gram has middotdecreasedover the last~five years~the demographic cJtaracteristics of fitstand $~cond offender drunk dovers have rem~ined fairly cOnstant includingtheir aver~ge age (approximately 31 ye~s)middot Furthermore inmiddot 1989 when there-were 33709 arrests 2550 drtink drivers (76 percentwent to jail in 1984 when 39912 drunk drivers were arrested 2006 of them were sent to jail (50 percent)

bull bullbull bull

17

~

~ middotc~)middotmiddot ~

~

- gt ~ -ilt c

-

bull gt

accur~~y

SENATE No~ -1900

[December - -1

sECnorit~REE I~~VESIN ~IMPLtEi)CONSENT J - po ~ _ --- ro bull

Int~ s~ctio~iof- themiddotr~o~ve 10~ka M~sa~hu~itS~ experience withf~tiilg for~lPt~xication~ nctthe implied conselli law Wcentthen e~amirttlieinw~~f~e~~~p~6(J~~ li~ on~~ain~s aDdmiddot~nmiddot

Ul~eqr~~ineDt ~syst~in ~a~~()Y~~1detltifY thieemiddotprD~~erils with - ~hcentJa~~s~tnp~~~atiQ~th~q~ngmiddoti~reflS~middotrat~1ui1ohgdet8iJl~s

middotmiddot(middot~~middotfP~~~q~I~~ac~~e~~~t~cen~e~sus~~i~~(~h~~~ ~hp ~emiddotil1e- test and faiJ~middot~iidfinaJI~tl1flack9fjdequat~iecoidsmiddotQllwhether the test was iidfu1nister~accepted middotormiddotfCieetectmiddot gt

~~~~jgtt~middotc~-ltmiddot TJ~(~ic~aeY9f1Ji~Tests ~

~7 bullbullbulll-~ - _ bull bull _ - _

Th~i~ middotis-inc~~~g evidencif that th~ tcentst pr~ltUresin place in yen$~U~~t~~u~e_lair pJa-yXor ttSt)~bjects~ft~ tb~tmiddotth~ infrared

iDaelJll~~ reqqired by the~w are accuratecanci teliable In what is ~~~~pg~I~~~~k c~e-in~~e fi~Ilt4Sat~ 6fJV~~Je~se~ v Andrew l)omiddot~m~ et ~l~Jle Supreme Co~ of ~~wJeJSeyhel4~tpat ~ch tes~~

~~c~~~~~~~~in~ ~gt ~ ~~~~ gt ~ ~ We-areconfiaenn~tcontInti~useoftheb~atfW~rwjllnot lead to unjustmiddot~~~vleti9~-The ~le~~ ~deii~ IS m9tet9ii~1~ive now t~tve(iliat ~e cbilQCe$of-ove~ti~m~tjonmiddot are ~Jaotdnarily ~

sm~l1middotmiddot middot ~fTbe b~ath~~er ismiddotmiddot)i~asSedin -i~ cQinbined pr~~ticalitymiddotmiddotampil4 use~~ssh em OJ he low side 111 a sl8nficant nu~ber ofcases in-order not to overestimate bloodmiddotatcoholin the

middotmiddotgreaies~j)ossibenumoer OfC8Ses~ Wi~e~ ~Vinlted this ~jusifiable middotmiddotiifltgtr4~r to furthermiddot the legislatures wilt ~rid middotmaiDtmefficiency in cmiddot

oiu~ystemQtJustiCeP ~ _ lt1middot~~middotmiddotmiddotmiddot ~t~ ~ ~ -~~ - -- ~

TheVqwnie tilSe is especially valu~bl~ ~ec~use ~lt)stl9f tJte leading expert~lp the ftefd~pPearcentd and teslifiea5othaftheNew Jersey court had tliebeilefjLofan extraordinarily comigtlet~ ~cord uponwhich to base ~its decision The Downie case reduCes concerns about the

and ~reliability of the breath~test middotJlJachines ~urTentIy permitted by MaSsachusetts law ~- ~

The ieliabiii~y of current technology is beco~ngless of an issue Deliberations jQ Massachusetts can ther~fore f~cus on whether the state wants accurate evidence of alcohol impairment and to what extent it wants such evidence not how the test is administered or whether it is accurate

Stall of Nlw Jersey v Andrew Downie e al 569 A2d 242 (NJ 1990) page 251

25

r J I

bull ~J~i~t Ri ~ gt i~mrmiddot1 ~ middoti~~~~ lt~~~~~$ ~~ ~~~a~~mber) (lIe~fet) middotSiilpeDsl~as ~UI~~its~Cn$ 1

- middot~I986~ middot38iO~9middot - 9449 middot2S NA J I middotmiddott~~l~ t~a8J66o c ~~ 13510 36 2608C)middotd

middotmiddotI~~~J~ i~~~~l~ 3~C ~~ml

1middotgt~~atePcrst A~(iifil~CI oVCrsi8h middott cStima te ~ ~ -I

sect~lIlc MA~J5~centlsirY ~pdotor ~Chi~ICS _ ~l I ~~ gt1 i

~ 1

Ij~~~~~~ qgt ~~~ceJ986~middott~ep~rC~iltage of pe~onsr~fus1Dg~o J~e a breath

orJ)loOd~tes( aft~r arrest for drunk dtiving hasJncreased 44 - p~~~n~lrising f~Qll2S percent to 36 ~rc~rttlt

middot ltOut of33imiddot7~ p~~pl~ -yenr~ted -fo~ dru~dri~i~gj~Massachushy 0 middotsettsciuiiJig-198~12279people refused to take abfeath or blood test -and~()nly U~639 actually took a breath ormiddot bl~od test arter ~ JliTestmiddotmiddot -

bull Registry ~tMotor Vehicles and Office of Alcohol Testing reports do not indicate and cannot account for whether or not 9791 of the states 23918 dnitlk driving offendersin- 1989 were offered a breath or blood testand whether they took or refusedihat test

26 SENATE - No 1900 [December

Ie Of the 11639 offenders who consentedmiddott~ a ~~eath or biood test in 1989o~y6998 haeJ theirJicensessus~middotnded under the provi- sionS of~he-~aamimstraiivePerse role

There ~r~-three~~se~o~ pr~bienis jItlieM~~~b~~etts implied consent ~trategy Firsimany offellders are tefusittjto take a test

~ 1~~~~~~~1~~~~ ~t~~ t~1~~4la~e~~e~ fir~t offe~ders ar~~~soretusing~o t~eth~eSF D~ng thepcriodlt

froQll9ampampto-1982)ii~)1mrber of people refuSing teiake the test has rise~ 44 p~r~ent froJl2S percent of those aITested1t) -36 percent of

those arrested gt ~ - bullbull

~ The iniat~forinfor first a~d ~~c~rilaquo(offe~(etproampraritsoffermiddot middot8ddtiQna~vid~Jice- diat the proportion or-clients refUsing middotto take a

~br~at~ tcentsectt~~ter middotmiddot~IT~~tmiddot ~as risen sharply Alice~ t981 andsecond p~ngers il~e)nu~h~orelikeryo refus~ to take~he middottestmiddot During

calepdar ~~rmiddot1989~ percent ~f the second- offendcrs ad~tted to the i4-ltiyiJogran1reported thalt~ey hadiefus~to take abreath

~ bull 0 bull _ bull bull

test c()mp~ to a 33 percent nite for flr$t~offen4eIS ~ The CoDinu)nwealtIj therefore~ must prosecute 8Imost two-thirds

of its drunk drivers without scientific eViden~ - cd imp8irment Mo~eover~J~e pr~s~~i~penalty structure is~i~~ffecii~e~I~ca~mgthe

vast majorityof dninkdrivers to ~onsend~the ~r~th t~~t Second roughly oile-tbird ofthosewhp~taketb-e bteatbmiddot test and

arefoundtohave alllgh blood aicohol conce~tratioiaren~(getting their licenses suspended Of the 33709 peopie ~~lor drunk driving in MaJossachusetts duIjng 1989 onlyOne-third were documentedHo havetaken a blood alcoh()tteStaftetartestOf those who were dricume~ied to have taken the test (rQtU the Commonshywealths testing experience we could estimate tha~IO800 of these individuals would have had a blood level conCentration of at least 010)8 However datfl from the Registry of Mot~~ Vehicles show that only 6998 persons were suspended under the middotmiddotadininistrative per se provisions All 10800 of those who would have tested above 010 percent however would have been subject to an immediate license

Accordinl to data from the Office of Alcohol Testing only 63 percent of those persons tested durin fiscal year 1989 and 62 percent of those per50m tested during fISCal year 1990 recorded test results of

BACs below 010 percent Given these results it is likely that of the 11639 tests administered in 19Z9 10800 would have BACs higher than 010 percent

SENATE - No 1900 27

suspension 81 aiJai~~e~~there is no ~1earieasonfor the states failuftnO suspen(J the licenSes of Offenders Th~third pio~~em W(~hthe statesimplementatlonoftbe implied

~ consent law is~lli~p~o~ie~tr~cor4 ~eep~ng p1cent riu~ber of people who refuse thehteath~iYi~fan(fthosewho takethe test~c~ouni for only10S perCcent~t9(tat~~~~irestslt ~~very ~isl~rbi~g t~~t_ the state ~l~0~acc9ui1~fqr~t~qpL~Opercent ~I itscaSeSltt~~ ~ gt~_

Sorn~Qf-tht(~uiirepq~~d casestn~y~ hav~ bcent~J)middot~p cit~~mstaJices wheii~~~poli~~iriad(~aij~~ts gtwithOut offerbigtbe tesi niis oCcurs

-J ~ r middot~middotmiddot-i~ middotr~ - __ r - - - -

wh~~ ~secteCp~~~ofic~r ~~np( ~v~ljPJ~ t~_ ~it_n~~~~h~ ~esliHr wheremiddot thercent it~no qualifiedbreadttest oper~tor prese1itcFhi~oC(ursmore

middot~~ f ~ ~ bull - bull ~ bullbull J - - bullbull ~ _ j J bull bull _ bull bullbullbullbull shy

fr~qu~ritlYin_~PIaJ~r~pat1ments Tlielaw r~quir~llfa(iirtJl~)vent

thatt~~lis~~J~fu~~~gta-~cp~~ical test- wh~n~qqe~ted tli~ officer L~c Jiii~gfli~treq~~sfsli~lf~piJllediately prepar~ a~ptfenlepqFrof s1ch ~ ~ ~ jrrefusaIarid~ thtfthis r~phifmust bet end()rseltt6y~tliirdpeison ~who -~~-~~bad i~iiesseltl jJ1~refu~Waowever~hetej~nsect Way Q~o~what _-

r ~ tOpartQfJhe 30middotpe~ntojdie unreported casesis1111Ci tQ t~i~Teason~2o lt gtj q ~ltmiddotgtgtigt lt ~-

~ ~i~ SECT10N FO_~ s~~~~~y ANDRECO~~~~J~r~~N~ Cle~rly the G6Q1ni~n~ealths comQ1itDen( ~~diu~~ driving ~iet1tnce hasti~n i~~oya~~~e s~bst~tial~a~~ sfifssf~~Glt~n~es

10 law~ and recentc()urt de~ls10ns aff~tm~ ltabiAty~for d(Unk dnv10g -accid~iltShave h~(f asigl~ant influence on red~~iiig~r11nk4riving as diq iip~reAAe~rl~welif()rcenient The Com~dilw~a~li~s~~uccess is

also ~itti~utahdo strongpuhlic awareness andconce51L~(ltliedeshydine indrinkll)g~~and thechanging demographicsOf (lie dpving popuI~tion middotfmiddot

Alsltgt in spiie6f noticeable decreases in sevetal~n1nk driving countermeasuresduring tlle latter years of the decade state efforts to deter and identify drunk driving during the years 1980~to 1989 far surpassed the efforts made in the preceding decade (see Table V)

9 MGL Chapter 90 Section 24(1)

20 The Commonwealth must address the problem of circumstances arising when there is no witness to a test Just as local fire departments frequently rely on mutual assistance from other communities police departments must make arrangements for mutunl aid cr for centrJlizeltesting of drunk drivers especially in the more rural areas of the state

01

19 bull 1 I

39~9i2 - UOS~ 31~1700 40251100

79l

180

SENATE shy No 1900

I ~

~ IS74 - 2S87 I

291C)ooQ - i 36414oo

~

DUlIAreSh ric~sed Driv~n

1990]

Amiddotti~t Rate per ~ ~ l~~DriYers J 1~B7 shy 710 ~

r - 1 ~- ~+ - - - ri

- SO~e ~n~tC P~st- _AUdit and~v~iBht

r-~-middotgt7~ bull ~ ~ ~ 1~ ~ ~

i~gsc~ gt middotOL gt bull bull _ Themes~iratcdncrea$ed263 percent from 1970 to 1984 from

~ shy ~- iai~~lO bull~ariestsptriOOoIicen$eddrivers~~-_ ~ _~ ~~lmiddot ~ ~ gtshy bullbull - __

_ ~ - Be~weiit198()-and 1984 -~he drunk driving arrest raie rose 47 ~ bull ~tf1~t 4 _ bull bull bull - 1

pei~nt ~9ntiiluingt~e~PQsitivetrerid established-d~g the two S p~e~~pifii~yearpeii~ds - shy gt - -~ S~t~84~~arre$ti~t~ h~ d~cIined 24 percent

Tfi~~ii~tff~t~~t-i~OOo licensed 4rivers ini989 (791) is only gt 1pound~nffil8her tbijiit~e i98() rate~_ -T

_ ~middot~--I ~ - 1 _ ~ bull bull bull ~ thF~ ~~~com~tmg explanatio~ for the 24PerCent~c=Crease in drnlt~t~g~Cyentivitysince 1984The t-rstexp~tion

favoi~qbYanu~ber-ofpoJice admiJiistrators is that P8st~nforcement and acfjap2eindQver bChavi()r ~ responsible for the CI~rCaSing rate of aq~$(~~ According to th~ theQry there are f~w~~altestsbecause past enforcement efforts-have successfully deterred d~ driving so

that there are fewer drunk drivers on the roads to apprehend There have not been any local studies to test this explanation~ but few safety experts have been willing to accept this type of anecdotal data on face value

19

1shy

1

1 I

~_ bullbull

~

j -

SENATE ~ No~ 1900 December

Acts of 1961 Chapter 340

14 MGl Chapter 90 Section 24f

1990) 1 lt SENATE ~ Nol900 _

-~~ ~

~i -

PenUllog Drunk Drivers

The Massachusetts system for penalizingdunk drivers includes middotlicense suspensions or revocations fines education and treatment and incarceration The penalties are graduated into three main steps such that theybecome increasingly intensive and they are determined

IS Digesl of Slale Alcohol Highway SafelY Relaled Regulalion eighth edition National Highway Traffic Safety Association

11

- ~

gt SENATE shy No 1900

-

~

[December

~

gt

See Acts of 1982 Chapter 373

c

13

i

- f -- ~ _ gt bull $ -

~i~-~~(~~ ~ ~ ~~ middot(Jey FW4iDgS~ ~ -

- ~_~ _~ ~~ ~ g- ~~ 1__ I bull J

bull ASS1~~~nts-to middotir8t offender programs hv~middot d~crea$ed 20 perceilrsincefis~aLyear 1985i mirroringJh~~~hllng auest tate

bull A~sigriments to the second ~ffenders piogr~~h~lV~deereaSed bull lo _ (

but te-middotdeclirie~has not been as sharp-as fQrthe first offender

(- ~ J)rosr~~ -~ imiddot cmiddotbullbull ~~-- r middotltThe Departme~t of Public 9f Health r~portsltthat while the

frequenCy o~adtni$~i()ns to th~ 14-day trtmen~J)r()gram has middotdecreasedover the last~five years~the demographic cJtaracteristics of fitstand $~cond offender drunk dovers have rem~ined fairly cOnstant includingtheir aver~ge age (approximately 31 ye~s)middot Furthermore inmiddot 1989 when there-were 33709 arrests 2550 drtink drivers (76 percentwent to jail in 1984 when 39912 drunk drivers were arrested 2006 of them were sent to jail (50 percent)

bull bullbull bull

17

~

~ middotc~)middotmiddot ~

~

- gt ~ -ilt c

-

bull gt

accur~~y

SENATE No~ -1900

[December - -1

sECnorit~REE I~~VESIN ~IMPLtEi)CONSENT J - po ~ _ --- ro bull

Int~ s~ctio~iof- themiddotr~o~ve 10~ka M~sa~hu~itS~ experience withf~tiilg for~lPt~xication~ nctthe implied conselli law Wcentthen e~amirttlieinw~~f~e~~~p~6(J~~ li~ on~~ain~s aDdmiddot~nmiddot

Ul~eqr~~ineDt ~syst~in ~a~~()Y~~1detltifY thieemiddotprD~~erils with - ~hcentJa~~s~tnp~~~atiQ~th~q~ngmiddoti~reflS~middotrat~1ui1ohgdet8iJl~s

middotmiddot(middot~~middotfP~~~q~I~~ac~~e~~~t~cen~e~sus~~i~~(~h~~~ ~hp ~emiddotil1e- test and faiJ~middot~iidfinaJI~tl1flack9fjdequat~iecoidsmiddotQllwhether the test was iidfu1nister~accepted middotormiddotfCieetectmiddot gt

~~~~jgtt~middotc~-ltmiddot TJ~(~ic~aeY9f1Ji~Tests ~

~7 bullbullbulll-~ - _ bull bull _ - _

Th~i~ middotis-inc~~~g evidencif that th~ tcentst pr~ltUresin place in yen$~U~~t~~u~e_lair pJa-yXor ttSt)~bjects~ft~ tb~tmiddotth~ infrared

iDaelJll~~ reqqired by the~w are accuratecanci teliable In what is ~~~~pg~I~~~~k c~e-in~~e fi~Ilt4Sat~ 6fJV~~Je~se~ v Andrew l)omiddot~m~ et ~l~Jle Supreme Co~ of ~~wJeJSeyhel4~tpat ~ch tes~~

~~c~~~~~~~~in~ ~gt ~ ~~~~ gt ~ ~ We-areconfiaenn~tcontInti~useoftheb~atfW~rwjllnot lead to unjustmiddot~~~vleti9~-The ~le~~ ~deii~ IS m9tet9ii~1~ive now t~tve(iliat ~e cbilQCe$of-ove~ti~m~tjonmiddot are ~Jaotdnarily ~

sm~l1middotmiddot middot ~fTbe b~ath~~er ismiddotmiddot)i~asSedin -i~ cQinbined pr~~ticalitymiddotmiddotampil4 use~~ssh em OJ he low side 111 a sl8nficant nu~ber ofcases in-order not to overestimate bloodmiddotatcoholin the

middotmiddotgreaies~j)ossibenumoer OfC8Ses~ Wi~e~ ~Vinlted this ~jusifiable middotmiddotiifltgtr4~r to furthermiddot the legislatures wilt ~rid middotmaiDtmefficiency in cmiddot

oiu~ystemQtJustiCeP ~ _ lt1middot~~middotmiddotmiddotmiddot ~t~ ~ ~ -~~ - -- ~

TheVqwnie tilSe is especially valu~bl~ ~ec~use ~lt)stl9f tJte leading expert~lp the ftefd~pPearcentd and teslifiea5othaftheNew Jersey court had tliebeilefjLofan extraordinarily comigtlet~ ~cord uponwhich to base ~its decision The Downie case reduCes concerns about the

and ~reliability of the breath~test middotJlJachines ~urTentIy permitted by MaSsachusetts law ~- ~

The ieliabiii~y of current technology is beco~ngless of an issue Deliberations jQ Massachusetts can ther~fore f~cus on whether the state wants accurate evidence of alcohol impairment and to what extent it wants such evidence not how the test is administered or whether it is accurate

Stall of Nlw Jersey v Andrew Downie e al 569 A2d 242 (NJ 1990) page 251

25

r J I

bull ~J~i~t Ri ~ gt i~mrmiddot1 ~ middoti~~~~ lt~~~~~$ ~~ ~~~a~~mber) (lIe~fet) middotSiilpeDsl~as ~UI~~its~Cn$ 1

- middot~I986~ middot38iO~9middot - 9449 middot2S NA J I middotmiddott~~l~ t~a8J66o c ~~ 13510 36 2608C)middotd

middotmiddotI~~~J~ i~~~~l~ 3~C ~~ml

1middotgt~~atePcrst A~(iifil~CI oVCrsi8h middott cStima te ~ ~ -I

sect~lIlc MA~J5~centlsirY ~pdotor ~Chi~ICS _ ~l I ~~ gt1 i

~ 1

Ij~~~~~~ qgt ~~~ceJ986~middott~ep~rC~iltage of pe~onsr~fus1Dg~o J~e a breath

orJ)loOd~tes( aft~r arrest for drunk dtiving hasJncreased 44 - p~~~n~lrising f~Qll2S percent to 36 ~rc~rttlt

middot ltOut of33imiddot7~ p~~pl~ -yenr~ted -fo~ dru~dri~i~gj~Massachushy 0 middotsettsciuiiJig-198~12279people refused to take abfeath or blood test -and~()nly U~639 actually took a breath ormiddot bl~od test arter ~ JliTestmiddotmiddot -

bull Registry ~tMotor Vehicles and Office of Alcohol Testing reports do not indicate and cannot account for whether or not 9791 of the states 23918 dnitlk driving offendersin- 1989 were offered a breath or blood testand whether they took or refusedihat test

26 SENATE - No 1900 [December

Ie Of the 11639 offenders who consentedmiddott~ a ~~eath or biood test in 1989o~y6998 haeJ theirJicensessus~middotnded under the provi- sionS of~he-~aamimstraiivePerse role

There ~r~-three~~se~o~ pr~bienis jItlieM~~~b~~etts implied consent ~trategy Firsimany offellders are tefusittjto take a test

~ 1~~~~~~~1~~~~ ~t~~ t~1~~4la~e~~e~ fir~t offe~ders ar~~~soretusing~o t~eth~eSF D~ng thepcriodlt

froQll9ampampto-1982)ii~)1mrber of people refuSing teiake the test has rise~ 44 p~r~ent froJl2S percent of those aITested1t) -36 percent of

those arrested gt ~ - bullbull

~ The iniat~forinfor first a~d ~~c~rilaquo(offe~(etproampraritsoffermiddot middot8ddtiQna~vid~Jice- diat the proportion or-clients refUsing middotto take a

~br~at~ tcentsectt~~ter middotmiddot~IT~~tmiddot ~as risen sharply Alice~ t981 andsecond p~ngers il~e)nu~h~orelikeryo refus~ to take~he middottestmiddot During

calepdar ~~rmiddot1989~ percent ~f the second- offendcrs ad~tted to the i4-ltiyiJogran1reported thalt~ey hadiefus~to take abreath

~ bull 0 bull _ bull bull

test c()mp~ to a 33 percent nite for flr$t~offen4eIS ~ The CoDinu)nwealtIj therefore~ must prosecute 8Imost two-thirds

of its drunk drivers without scientific eViden~ - cd imp8irment Mo~eover~J~e pr~s~~i~penalty structure is~i~~ffecii~e~I~ca~mgthe

vast majorityof dninkdrivers to ~onsend~the ~r~th t~~t Second roughly oile-tbird ofthosewhp~taketb-e bteatbmiddot test and

arefoundtohave alllgh blood aicohol conce~tratioiaren~(getting their licenses suspended Of the 33709 peopie ~~lor drunk driving in MaJossachusetts duIjng 1989 onlyOne-third were documentedHo havetaken a blood alcoh()tteStaftetartestOf those who were dricume~ied to have taken the test (rQtU the Commonshywealths testing experience we could estimate tha~IO800 of these individuals would have had a blood level conCentration of at least 010)8 However datfl from the Registry of Mot~~ Vehicles show that only 6998 persons were suspended under the middotmiddotadininistrative per se provisions All 10800 of those who would have tested above 010 percent however would have been subject to an immediate license

Accordinl to data from the Office of Alcohol Testing only 63 percent of those persons tested durin fiscal year 1989 and 62 percent of those per50m tested during fISCal year 1990 recorded test results of

BACs below 010 percent Given these results it is likely that of the 11639 tests administered in 19Z9 10800 would have BACs higher than 010 percent

SENATE - No 1900 27

suspension 81 aiJai~~e~~there is no ~1earieasonfor the states failuftnO suspen(J the licenSes of Offenders Th~third pio~~em W(~hthe statesimplementatlonoftbe implied

~ consent law is~lli~p~o~ie~tr~cor4 ~eep~ng p1cent riu~ber of people who refuse thehteath~iYi~fan(fthosewho takethe test~c~ouni for only10S perCcent~t9(tat~~~~irestslt ~~very ~isl~rbi~g t~~t_ the state ~l~0~acc9ui1~fqr~t~qpL~Opercent ~I itscaSeSltt~~ ~ gt~_

Sorn~Qf-tht(~uiirepq~~d casestn~y~ hav~ bcent~J)middot~p cit~~mstaJices wheii~~~poli~~iriad(~aij~~ts gtwithOut offerbigtbe tesi niis oCcurs

-J ~ r middot~middotmiddot-i~ middotr~ - __ r - - - -

wh~~ ~secteCp~~~ofic~r ~~np( ~v~ljPJ~ t~_ ~it_n~~~~h~ ~esliHr wheremiddot thercent it~no qualifiedbreadttest oper~tor prese1itcFhi~oC(ursmore

middot~~ f ~ ~ bull - bull ~ bullbull J - - bullbull ~ _ j J bull bull _ bull bullbullbullbull shy

fr~qu~ritlYin_~PIaJ~r~pat1ments Tlielaw r~quir~llfa(iirtJl~)vent

thatt~~lis~~J~fu~~~gta-~cp~~ical test- wh~n~qqe~ted tli~ officer L~c Jiii~gfli~treq~~sfsli~lf~piJllediately prepar~ a~ptfenlepqFrof s1ch ~ ~ ~ jrrefusaIarid~ thtfthis r~phifmust bet end()rseltt6y~tliirdpeison ~who -~~-~~bad i~iiesseltl jJ1~refu~Waowever~hetej~nsect Way Q~o~what _-

r ~ tOpartQfJhe 30middotpe~ntojdie unreported casesis1111Ci tQ t~i~Teason~2o lt gtj q ~ltmiddotgtgtigt lt ~-

~ ~i~ SECT10N FO_~ s~~~~~y ANDRECO~~~~J~r~~N~ Cle~rly the G6Q1ni~n~ealths comQ1itDen( ~~diu~~ driving ~iet1tnce hasti~n i~~oya~~~e s~bst~tial~a~~ sfifssf~~Glt~n~es

10 law~ and recentc()urt de~ls10ns aff~tm~ ltabiAty~for d(Unk dnv10g -accid~iltShave h~(f asigl~ant influence on red~~iiig~r11nk4riving as diq iip~reAAe~rl~welif()rcenient The Com~dilw~a~li~s~~uccess is

also ~itti~utahdo strongpuhlic awareness andconce51L~(ltliedeshydine indrinkll)g~~and thechanging demographicsOf (lie dpving popuI~tion middotfmiddot

Alsltgt in spiie6f noticeable decreases in sevetal~n1nk driving countermeasuresduring tlle latter years of the decade state efforts to deter and identify drunk driving during the years 1980~to 1989 far surpassed the efforts made in the preceding decade (see Table V)

9 MGL Chapter 90 Section 24(1)

20 The Commonwealth must address the problem of circumstances arising when there is no witness to a test Just as local fire departments frequently rely on mutual assistance from other communities police departments must make arrangements for mutunl aid cr for centrJlizeltesting of drunk drivers especially in the more rural areas of the state

~

j -

SENATE ~ No~ 1900 December

Acts of 1961 Chapter 340

14 MGl Chapter 90 Section 24f

1990) 1 lt SENATE ~ Nol900 _

-~~ ~

~i -

PenUllog Drunk Drivers

The Massachusetts system for penalizingdunk drivers includes middotlicense suspensions or revocations fines education and treatment and incarceration The penalties are graduated into three main steps such that theybecome increasingly intensive and they are determined

IS Digesl of Slale Alcohol Highway SafelY Relaled Regulalion eighth edition National Highway Traffic Safety Association

11

- ~

gt SENATE shy No 1900

-

~

[December

~

gt

See Acts of 1982 Chapter 373

c

13

i

- f -- ~ _ gt bull $ -

~i~-~~(~~ ~ ~ ~~ middot(Jey FW4iDgS~ ~ -

- ~_~ _~ ~~ ~ g- ~~ 1__ I bull J

bull ASS1~~~nts-to middotir8t offender programs hv~middot d~crea$ed 20 perceilrsincefis~aLyear 1985i mirroringJh~~~hllng auest tate

bull A~sigriments to the second ~ffenders piogr~~h~lV~deereaSed bull lo _ (

but te-middotdeclirie~has not been as sharp-as fQrthe first offender

(- ~ J)rosr~~ -~ imiddot cmiddotbullbull ~~-- r middotltThe Departme~t of Public 9f Health r~portsltthat while the

frequenCy o~adtni$~i()ns to th~ 14-day trtmen~J)r()gram has middotdecreasedover the last~five years~the demographic cJtaracteristics of fitstand $~cond offender drunk dovers have rem~ined fairly cOnstant includingtheir aver~ge age (approximately 31 ye~s)middot Furthermore inmiddot 1989 when there-were 33709 arrests 2550 drtink drivers (76 percentwent to jail in 1984 when 39912 drunk drivers were arrested 2006 of them were sent to jail (50 percent)

bull bullbull bull

17

~

~ middotc~)middotmiddot ~

~

- gt ~ -ilt c

-

bull gt

accur~~y

SENATE No~ -1900

[December - -1

sECnorit~REE I~~VESIN ~IMPLtEi)CONSENT J - po ~ _ --- ro bull

Int~ s~ctio~iof- themiddotr~o~ve 10~ka M~sa~hu~itS~ experience withf~tiilg for~lPt~xication~ nctthe implied conselli law Wcentthen e~amirttlieinw~~f~e~~~p~6(J~~ li~ on~~ain~s aDdmiddot~nmiddot

Ul~eqr~~ineDt ~syst~in ~a~~()Y~~1detltifY thieemiddotprD~~erils with - ~hcentJa~~s~tnp~~~atiQ~th~q~ngmiddoti~reflS~middotrat~1ui1ohgdet8iJl~s

middotmiddot(middot~~middotfP~~~q~I~~ac~~e~~~t~cen~e~sus~~i~~(~h~~~ ~hp ~emiddotil1e- test and faiJ~middot~iidfinaJI~tl1flack9fjdequat~iecoidsmiddotQllwhether the test was iidfu1nister~accepted middotormiddotfCieetectmiddot gt

~~~~jgtt~middotc~-ltmiddot TJ~(~ic~aeY9f1Ji~Tests ~

~7 bullbullbulll-~ - _ bull bull _ - _

Th~i~ middotis-inc~~~g evidencif that th~ tcentst pr~ltUresin place in yen$~U~~t~~u~e_lair pJa-yXor ttSt)~bjects~ft~ tb~tmiddotth~ infrared

iDaelJll~~ reqqired by the~w are accuratecanci teliable In what is ~~~~pg~I~~~~k c~e-in~~e fi~Ilt4Sat~ 6fJV~~Je~se~ v Andrew l)omiddot~m~ et ~l~Jle Supreme Co~ of ~~wJeJSeyhel4~tpat ~ch tes~~

~~c~~~~~~~~in~ ~gt ~ ~~~~ gt ~ ~ We-areconfiaenn~tcontInti~useoftheb~atfW~rwjllnot lead to unjustmiddot~~~vleti9~-The ~le~~ ~deii~ IS m9tet9ii~1~ive now t~tve(iliat ~e cbilQCe$of-ove~ti~m~tjonmiddot are ~Jaotdnarily ~

sm~l1middotmiddot middot ~fTbe b~ath~~er ismiddotmiddot)i~asSedin -i~ cQinbined pr~~ticalitymiddotmiddotampil4 use~~ssh em OJ he low side 111 a sl8nficant nu~ber ofcases in-order not to overestimate bloodmiddotatcoholin the

middotmiddotgreaies~j)ossibenumoer OfC8Ses~ Wi~e~ ~Vinlted this ~jusifiable middotmiddotiifltgtr4~r to furthermiddot the legislatures wilt ~rid middotmaiDtmefficiency in cmiddot

oiu~ystemQtJustiCeP ~ _ lt1middot~~middotmiddotmiddotmiddot ~t~ ~ ~ -~~ - -- ~

TheVqwnie tilSe is especially valu~bl~ ~ec~use ~lt)stl9f tJte leading expert~lp the ftefd~pPearcentd and teslifiea5othaftheNew Jersey court had tliebeilefjLofan extraordinarily comigtlet~ ~cord uponwhich to base ~its decision The Downie case reduCes concerns about the

and ~reliability of the breath~test middotJlJachines ~urTentIy permitted by MaSsachusetts law ~- ~

The ieliabiii~y of current technology is beco~ngless of an issue Deliberations jQ Massachusetts can ther~fore f~cus on whether the state wants accurate evidence of alcohol impairment and to what extent it wants such evidence not how the test is administered or whether it is accurate

Stall of Nlw Jersey v Andrew Downie e al 569 A2d 242 (NJ 1990) page 251

25

r J I

bull ~J~i~t Ri ~ gt i~mrmiddot1 ~ middoti~~~~ lt~~~~~$ ~~ ~~~a~~mber) (lIe~fet) middotSiilpeDsl~as ~UI~~its~Cn$ 1

- middot~I986~ middot38iO~9middot - 9449 middot2S NA J I middotmiddott~~l~ t~a8J66o c ~~ 13510 36 2608C)middotd

middotmiddotI~~~J~ i~~~~l~ 3~C ~~ml

1middotgt~~atePcrst A~(iifil~CI oVCrsi8h middott cStima te ~ ~ -I

sect~lIlc MA~J5~centlsirY ~pdotor ~Chi~ICS _ ~l I ~~ gt1 i

~ 1

Ij~~~~~~ qgt ~~~ceJ986~middott~ep~rC~iltage of pe~onsr~fus1Dg~o J~e a breath

orJ)loOd~tes( aft~r arrest for drunk dtiving hasJncreased 44 - p~~~n~lrising f~Qll2S percent to 36 ~rc~rttlt

middot ltOut of33imiddot7~ p~~pl~ -yenr~ted -fo~ dru~dri~i~gj~Massachushy 0 middotsettsciuiiJig-198~12279people refused to take abfeath or blood test -and~()nly U~639 actually took a breath ormiddot bl~od test arter ~ JliTestmiddotmiddot -

bull Registry ~tMotor Vehicles and Office of Alcohol Testing reports do not indicate and cannot account for whether or not 9791 of the states 23918 dnitlk driving offendersin- 1989 were offered a breath or blood testand whether they took or refusedihat test

26 SENATE - No 1900 [December

Ie Of the 11639 offenders who consentedmiddott~ a ~~eath or biood test in 1989o~y6998 haeJ theirJicensessus~middotnded under the provi- sionS of~he-~aamimstraiivePerse role

There ~r~-three~~se~o~ pr~bienis jItlieM~~~b~~etts implied consent ~trategy Firsimany offellders are tefusittjto take a test

~ 1~~~~~~~1~~~~ ~t~~ t~1~~4la~e~~e~ fir~t offe~ders ar~~~soretusing~o t~eth~eSF D~ng thepcriodlt

froQll9ampampto-1982)ii~)1mrber of people refuSing teiake the test has rise~ 44 p~r~ent froJl2S percent of those aITested1t) -36 percent of

those arrested gt ~ - bullbull

~ The iniat~forinfor first a~d ~~c~rilaquo(offe~(etproampraritsoffermiddot middot8ddtiQna~vid~Jice- diat the proportion or-clients refUsing middotto take a

~br~at~ tcentsectt~~ter middotmiddot~IT~~tmiddot ~as risen sharply Alice~ t981 andsecond p~ngers il~e)nu~h~orelikeryo refus~ to take~he middottestmiddot During

calepdar ~~rmiddot1989~ percent ~f the second- offendcrs ad~tted to the i4-ltiyiJogran1reported thalt~ey hadiefus~to take abreath

~ bull 0 bull _ bull bull

test c()mp~ to a 33 percent nite for flr$t~offen4eIS ~ The CoDinu)nwealtIj therefore~ must prosecute 8Imost two-thirds

of its drunk drivers without scientific eViden~ - cd imp8irment Mo~eover~J~e pr~s~~i~penalty structure is~i~~ffecii~e~I~ca~mgthe

vast majorityof dninkdrivers to ~onsend~the ~r~th t~~t Second roughly oile-tbird ofthosewhp~taketb-e bteatbmiddot test and

arefoundtohave alllgh blood aicohol conce~tratioiaren~(getting their licenses suspended Of the 33709 peopie ~~lor drunk driving in MaJossachusetts duIjng 1989 onlyOne-third were documentedHo havetaken a blood alcoh()tteStaftetartestOf those who were dricume~ied to have taken the test (rQtU the Commonshywealths testing experience we could estimate tha~IO800 of these individuals would have had a blood level conCentration of at least 010)8 However datfl from the Registry of Mot~~ Vehicles show that only 6998 persons were suspended under the middotmiddotadininistrative per se provisions All 10800 of those who would have tested above 010 percent however would have been subject to an immediate license

Accordinl to data from the Office of Alcohol Testing only 63 percent of those persons tested durin fiscal year 1989 and 62 percent of those per50m tested during fISCal year 1990 recorded test results of

BACs below 010 percent Given these results it is likely that of the 11639 tests administered in 19Z9 10800 would have BACs higher than 010 percent

SENATE - No 1900 27

suspension 81 aiJai~~e~~there is no ~1earieasonfor the states failuftnO suspen(J the licenSes of Offenders Th~third pio~~em W(~hthe statesimplementatlonoftbe implied

~ consent law is~lli~p~o~ie~tr~cor4 ~eep~ng p1cent riu~ber of people who refuse thehteath~iYi~fan(fthosewho takethe test~c~ouni for only10S perCcent~t9(tat~~~~irestslt ~~very ~isl~rbi~g t~~t_ the state ~l~0~acc9ui1~fqr~t~qpL~Opercent ~I itscaSeSltt~~ ~ gt~_

Sorn~Qf-tht(~uiirepq~~d casestn~y~ hav~ bcent~J)middot~p cit~~mstaJices wheii~~~poli~~iriad(~aij~~ts gtwithOut offerbigtbe tesi niis oCcurs

-J ~ r middot~middotmiddot-i~ middotr~ - __ r - - - -

wh~~ ~secteCp~~~ofic~r ~~np( ~v~ljPJ~ t~_ ~it_n~~~~h~ ~esliHr wheremiddot thercent it~no qualifiedbreadttest oper~tor prese1itcFhi~oC(ursmore

middot~~ f ~ ~ bull - bull ~ bullbull J - - bullbull ~ _ j J bull bull _ bull bullbullbullbull shy

fr~qu~ritlYin_~PIaJ~r~pat1ments Tlielaw r~quir~llfa(iirtJl~)vent

thatt~~lis~~J~fu~~~gta-~cp~~ical test- wh~n~qqe~ted tli~ officer L~c Jiii~gfli~treq~~sfsli~lf~piJllediately prepar~ a~ptfenlepqFrof s1ch ~ ~ ~ jrrefusaIarid~ thtfthis r~phifmust bet end()rseltt6y~tliirdpeison ~who -~~-~~bad i~iiesseltl jJ1~refu~Waowever~hetej~nsect Way Q~o~what _-

r ~ tOpartQfJhe 30middotpe~ntojdie unreported casesis1111Ci tQ t~i~Teason~2o lt gtj q ~ltmiddotgtgtigt lt ~-

~ ~i~ SECT10N FO_~ s~~~~~y ANDRECO~~~~J~r~~N~ Cle~rly the G6Q1ni~n~ealths comQ1itDen( ~~diu~~ driving ~iet1tnce hasti~n i~~oya~~~e s~bst~tial~a~~ sfifssf~~Glt~n~es

10 law~ and recentc()urt de~ls10ns aff~tm~ ltabiAty~for d(Unk dnv10g -accid~iltShave h~(f asigl~ant influence on red~~iiig~r11nk4riving as diq iip~reAAe~rl~welif()rcenient The Com~dilw~a~li~s~~uccess is

also ~itti~utahdo strongpuhlic awareness andconce51L~(ltliedeshydine indrinkll)g~~and thechanging demographicsOf (lie dpving popuI~tion middotfmiddot

Alsltgt in spiie6f noticeable decreases in sevetal~n1nk driving countermeasuresduring tlle latter years of the decade state efforts to deter and identify drunk driving during the years 1980~to 1989 far surpassed the efforts made in the preceding decade (see Table V)

9 MGL Chapter 90 Section 24(1)

20 The Commonwealth must address the problem of circumstances arising when there is no witness to a test Just as local fire departments frequently rely on mutual assistance from other communities police departments must make arrangements for mutunl aid cr for centrJlizeltesting of drunk drivers especially in the more rural areas of the state

1990) 1 lt SENATE ~ Nol900 _

-~~ ~

~i -

PenUllog Drunk Drivers

The Massachusetts system for penalizingdunk drivers includes middotlicense suspensions or revocations fines education and treatment and incarceration The penalties are graduated into three main steps such that theybecome increasingly intensive and they are determined

IS Digesl of Slale Alcohol Highway SafelY Relaled Regulalion eighth edition National Highway Traffic Safety Association

11

- ~

gt SENATE shy No 1900

-

~

[December

~

gt

See Acts of 1982 Chapter 373

c

13

i

- f -- ~ _ gt bull $ -

~i~-~~(~~ ~ ~ ~~ middot(Jey FW4iDgS~ ~ -

- ~_~ _~ ~~ ~ g- ~~ 1__ I bull J

bull ASS1~~~nts-to middotir8t offender programs hv~middot d~crea$ed 20 perceilrsincefis~aLyear 1985i mirroringJh~~~hllng auest tate

bull A~sigriments to the second ~ffenders piogr~~h~lV~deereaSed bull lo _ (

but te-middotdeclirie~has not been as sharp-as fQrthe first offender

(- ~ J)rosr~~ -~ imiddot cmiddotbullbull ~~-- r middotltThe Departme~t of Public 9f Health r~portsltthat while the

frequenCy o~adtni$~i()ns to th~ 14-day trtmen~J)r()gram has middotdecreasedover the last~five years~the demographic cJtaracteristics of fitstand $~cond offender drunk dovers have rem~ined fairly cOnstant includingtheir aver~ge age (approximately 31 ye~s)middot Furthermore inmiddot 1989 when there-were 33709 arrests 2550 drtink drivers (76 percentwent to jail in 1984 when 39912 drunk drivers were arrested 2006 of them were sent to jail (50 percent)

bull bullbull bull

17

~

~ middotc~)middotmiddot ~

~

- gt ~ -ilt c

-

bull gt

accur~~y

SENATE No~ -1900

[December - -1

sECnorit~REE I~~VESIN ~IMPLtEi)CONSENT J - po ~ _ --- ro bull

Int~ s~ctio~iof- themiddotr~o~ve 10~ka M~sa~hu~itS~ experience withf~tiilg for~lPt~xication~ nctthe implied conselli law Wcentthen e~amirttlieinw~~f~e~~~p~6(J~~ li~ on~~ain~s aDdmiddot~nmiddot

Ul~eqr~~ineDt ~syst~in ~a~~()Y~~1detltifY thieemiddotprD~~erils with - ~hcentJa~~s~tnp~~~atiQ~th~q~ngmiddoti~reflS~middotrat~1ui1ohgdet8iJl~s

middotmiddot(middot~~middotfP~~~q~I~~ac~~e~~~t~cen~e~sus~~i~~(~h~~~ ~hp ~emiddotil1e- test and faiJ~middot~iidfinaJI~tl1flack9fjdequat~iecoidsmiddotQllwhether the test was iidfu1nister~accepted middotormiddotfCieetectmiddot gt

~~~~jgtt~middotc~-ltmiddot TJ~(~ic~aeY9f1Ji~Tests ~

~7 bullbullbulll-~ - _ bull bull _ - _

Th~i~ middotis-inc~~~g evidencif that th~ tcentst pr~ltUresin place in yen$~U~~t~~u~e_lair pJa-yXor ttSt)~bjects~ft~ tb~tmiddotth~ infrared

iDaelJll~~ reqqired by the~w are accuratecanci teliable In what is ~~~~pg~I~~~~k c~e-in~~e fi~Ilt4Sat~ 6fJV~~Je~se~ v Andrew l)omiddot~m~ et ~l~Jle Supreme Co~ of ~~wJeJSeyhel4~tpat ~ch tes~~

~~c~~~~~~~~in~ ~gt ~ ~~~~ gt ~ ~ We-areconfiaenn~tcontInti~useoftheb~atfW~rwjllnot lead to unjustmiddot~~~vleti9~-The ~le~~ ~deii~ IS m9tet9ii~1~ive now t~tve(iliat ~e cbilQCe$of-ove~ti~m~tjonmiddot are ~Jaotdnarily ~

sm~l1middotmiddot middot ~fTbe b~ath~~er ismiddotmiddot)i~asSedin -i~ cQinbined pr~~ticalitymiddotmiddotampil4 use~~ssh em OJ he low side 111 a sl8nficant nu~ber ofcases in-order not to overestimate bloodmiddotatcoholin the

middotmiddotgreaies~j)ossibenumoer OfC8Ses~ Wi~e~ ~Vinlted this ~jusifiable middotmiddotiifltgtr4~r to furthermiddot the legislatures wilt ~rid middotmaiDtmefficiency in cmiddot

oiu~ystemQtJustiCeP ~ _ lt1middot~~middotmiddotmiddotmiddot ~t~ ~ ~ -~~ - -- ~

TheVqwnie tilSe is especially valu~bl~ ~ec~use ~lt)stl9f tJte leading expert~lp the ftefd~pPearcentd and teslifiea5othaftheNew Jersey court had tliebeilefjLofan extraordinarily comigtlet~ ~cord uponwhich to base ~its decision The Downie case reduCes concerns about the

and ~reliability of the breath~test middotJlJachines ~urTentIy permitted by MaSsachusetts law ~- ~

The ieliabiii~y of current technology is beco~ngless of an issue Deliberations jQ Massachusetts can ther~fore f~cus on whether the state wants accurate evidence of alcohol impairment and to what extent it wants such evidence not how the test is administered or whether it is accurate

Stall of Nlw Jersey v Andrew Downie e al 569 A2d 242 (NJ 1990) page 251

25

r J I

bull ~J~i~t Ri ~ gt i~mrmiddot1 ~ middoti~~~~ lt~~~~~$ ~~ ~~~a~~mber) (lIe~fet) middotSiilpeDsl~as ~UI~~its~Cn$ 1

- middot~I986~ middot38iO~9middot - 9449 middot2S NA J I middotmiddott~~l~ t~a8J66o c ~~ 13510 36 2608C)middotd

middotmiddotI~~~J~ i~~~~l~ 3~C ~~ml

1middotgt~~atePcrst A~(iifil~CI oVCrsi8h middott cStima te ~ ~ -I

sect~lIlc MA~J5~centlsirY ~pdotor ~Chi~ICS _ ~l I ~~ gt1 i

~ 1

Ij~~~~~~ qgt ~~~ceJ986~middott~ep~rC~iltage of pe~onsr~fus1Dg~o J~e a breath

orJ)loOd~tes( aft~r arrest for drunk dtiving hasJncreased 44 - p~~~n~lrising f~Qll2S percent to 36 ~rc~rttlt

middot ltOut of33imiddot7~ p~~pl~ -yenr~ted -fo~ dru~dri~i~gj~Massachushy 0 middotsettsciuiiJig-198~12279people refused to take abfeath or blood test -and~()nly U~639 actually took a breath ormiddot bl~od test arter ~ JliTestmiddotmiddot -

bull Registry ~tMotor Vehicles and Office of Alcohol Testing reports do not indicate and cannot account for whether or not 9791 of the states 23918 dnitlk driving offendersin- 1989 were offered a breath or blood testand whether they took or refusedihat test

26 SENATE - No 1900 [December

Ie Of the 11639 offenders who consentedmiddott~ a ~~eath or biood test in 1989o~y6998 haeJ theirJicensessus~middotnded under the provi- sionS of~he-~aamimstraiivePerse role

There ~r~-three~~se~o~ pr~bienis jItlieM~~~b~~etts implied consent ~trategy Firsimany offellders are tefusittjto take a test

~ 1~~~~~~~1~~~~ ~t~~ t~1~~4la~e~~e~ fir~t offe~ders ar~~~soretusing~o t~eth~eSF D~ng thepcriodlt

froQll9ampampto-1982)ii~)1mrber of people refuSing teiake the test has rise~ 44 p~r~ent froJl2S percent of those aITested1t) -36 percent of

those arrested gt ~ - bullbull

~ The iniat~forinfor first a~d ~~c~rilaquo(offe~(etproampraritsoffermiddot middot8ddtiQna~vid~Jice- diat the proportion or-clients refUsing middotto take a

~br~at~ tcentsectt~~ter middotmiddot~IT~~tmiddot ~as risen sharply Alice~ t981 andsecond p~ngers il~e)nu~h~orelikeryo refus~ to take~he middottestmiddot During

calepdar ~~rmiddot1989~ percent ~f the second- offendcrs ad~tted to the i4-ltiyiJogran1reported thalt~ey hadiefus~to take abreath

~ bull 0 bull _ bull bull

test c()mp~ to a 33 percent nite for flr$t~offen4eIS ~ The CoDinu)nwealtIj therefore~ must prosecute 8Imost two-thirds

of its drunk drivers without scientific eViden~ - cd imp8irment Mo~eover~J~e pr~s~~i~penalty structure is~i~~ffecii~e~I~ca~mgthe

vast majorityof dninkdrivers to ~onsend~the ~r~th t~~t Second roughly oile-tbird ofthosewhp~taketb-e bteatbmiddot test and

arefoundtohave alllgh blood aicohol conce~tratioiaren~(getting their licenses suspended Of the 33709 peopie ~~lor drunk driving in MaJossachusetts duIjng 1989 onlyOne-third were documentedHo havetaken a blood alcoh()tteStaftetartestOf those who were dricume~ied to have taken the test (rQtU the Commonshywealths testing experience we could estimate tha~IO800 of these individuals would have had a blood level conCentration of at least 010)8 However datfl from the Registry of Mot~~ Vehicles show that only 6998 persons were suspended under the middotmiddotadininistrative per se provisions All 10800 of those who would have tested above 010 percent however would have been subject to an immediate license

Accordinl to data from the Office of Alcohol Testing only 63 percent of those persons tested durin fiscal year 1989 and 62 percent of those per50m tested during fISCal year 1990 recorded test results of

BACs below 010 percent Given these results it is likely that of the 11639 tests administered in 19Z9 10800 would have BACs higher than 010 percent

SENATE - No 1900 27

suspension 81 aiJai~~e~~there is no ~1earieasonfor the states failuftnO suspen(J the licenSes of Offenders Th~third pio~~em W(~hthe statesimplementatlonoftbe implied

~ consent law is~lli~p~o~ie~tr~cor4 ~eep~ng p1cent riu~ber of people who refuse thehteath~iYi~fan(fthosewho takethe test~c~ouni for only10S perCcent~t9(tat~~~~irestslt ~~very ~isl~rbi~g t~~t_ the state ~l~0~acc9ui1~fqr~t~qpL~Opercent ~I itscaSeSltt~~ ~ gt~_

Sorn~Qf-tht(~uiirepq~~d casestn~y~ hav~ bcent~J)middot~p cit~~mstaJices wheii~~~poli~~iriad(~aij~~ts gtwithOut offerbigtbe tesi niis oCcurs

-J ~ r middot~middotmiddot-i~ middotr~ - __ r - - - -

wh~~ ~secteCp~~~ofic~r ~~np( ~v~ljPJ~ t~_ ~it_n~~~~h~ ~esliHr wheremiddot thercent it~no qualifiedbreadttest oper~tor prese1itcFhi~oC(ursmore

middot~~ f ~ ~ bull - bull ~ bullbull J - - bullbull ~ _ j J bull bull _ bull bullbullbullbull shy

fr~qu~ritlYin_~PIaJ~r~pat1ments Tlielaw r~quir~llfa(iirtJl~)vent

thatt~~lis~~J~fu~~~gta-~cp~~ical test- wh~n~qqe~ted tli~ officer L~c Jiii~gfli~treq~~sfsli~lf~piJllediately prepar~ a~ptfenlepqFrof s1ch ~ ~ ~ jrrefusaIarid~ thtfthis r~phifmust bet end()rseltt6y~tliirdpeison ~who -~~-~~bad i~iiesseltl jJ1~refu~Waowever~hetej~nsect Way Q~o~what _-

r ~ tOpartQfJhe 30middotpe~ntojdie unreported casesis1111Ci tQ t~i~Teason~2o lt gtj q ~ltmiddotgtgtigt lt ~-

~ ~i~ SECT10N FO_~ s~~~~~y ANDRECO~~~~J~r~~N~ Cle~rly the G6Q1ni~n~ealths comQ1itDen( ~~diu~~ driving ~iet1tnce hasti~n i~~oya~~~e s~bst~tial~a~~ sfifssf~~Glt~n~es

10 law~ and recentc()urt de~ls10ns aff~tm~ ltabiAty~for d(Unk dnv10g -accid~iltShave h~(f asigl~ant influence on red~~iiig~r11nk4riving as diq iip~reAAe~rl~welif()rcenient The Com~dilw~a~li~s~~uccess is

also ~itti~utahdo strongpuhlic awareness andconce51L~(ltliedeshydine indrinkll)g~~and thechanging demographicsOf (lie dpving popuI~tion middotfmiddot

Alsltgt in spiie6f noticeable decreases in sevetal~n1nk driving countermeasuresduring tlle latter years of the decade state efforts to deter and identify drunk driving during the years 1980~to 1989 far surpassed the efforts made in the preceding decade (see Table V)

9 MGL Chapter 90 Section 24(1)

20 The Commonwealth must address the problem of circumstances arising when there is no witness to a test Just as local fire departments frequently rely on mutual assistance from other communities police departments must make arrangements for mutunl aid cr for centrJlizeltesting of drunk drivers especially in the more rural areas of the state

11

- ~

gt SENATE shy No 1900

-

~

[December

~

gt

See Acts of 1982 Chapter 373

c

13

i

- f -- ~ _ gt bull $ -

~i~-~~(~~ ~ ~ ~~ middot(Jey FW4iDgS~ ~ -

- ~_~ _~ ~~ ~ g- ~~ 1__ I bull J

bull ASS1~~~nts-to middotir8t offender programs hv~middot d~crea$ed 20 perceilrsincefis~aLyear 1985i mirroringJh~~~hllng auest tate

bull A~sigriments to the second ~ffenders piogr~~h~lV~deereaSed bull lo _ (

but te-middotdeclirie~has not been as sharp-as fQrthe first offender

(- ~ J)rosr~~ -~ imiddot cmiddotbullbull ~~-- r middotltThe Departme~t of Public 9f Health r~portsltthat while the

frequenCy o~adtni$~i()ns to th~ 14-day trtmen~J)r()gram has middotdecreasedover the last~five years~the demographic cJtaracteristics of fitstand $~cond offender drunk dovers have rem~ined fairly cOnstant includingtheir aver~ge age (approximately 31 ye~s)middot Furthermore inmiddot 1989 when there-were 33709 arrests 2550 drtink drivers (76 percentwent to jail in 1984 when 39912 drunk drivers were arrested 2006 of them were sent to jail (50 percent)

bull bullbull bull

17

~

~ middotc~)middotmiddot ~

~

- gt ~ -ilt c

-

bull gt

accur~~y

SENATE No~ -1900

[December - -1

sECnorit~REE I~~VESIN ~IMPLtEi)CONSENT J - po ~ _ --- ro bull

Int~ s~ctio~iof- themiddotr~o~ve 10~ka M~sa~hu~itS~ experience withf~tiilg for~lPt~xication~ nctthe implied conselli law Wcentthen e~amirttlieinw~~f~e~~~p~6(J~~ li~ on~~ain~s aDdmiddot~nmiddot

Ul~eqr~~ineDt ~syst~in ~a~~()Y~~1detltifY thieemiddotprD~~erils with - ~hcentJa~~s~tnp~~~atiQ~th~q~ngmiddoti~reflS~middotrat~1ui1ohgdet8iJl~s

middotmiddot(middot~~middotfP~~~q~I~~ac~~e~~~t~cen~e~sus~~i~~(~h~~~ ~hp ~emiddotil1e- test and faiJ~middot~iidfinaJI~tl1flack9fjdequat~iecoidsmiddotQllwhether the test was iidfu1nister~accepted middotormiddotfCieetectmiddot gt

~~~~jgtt~middotc~-ltmiddot TJ~(~ic~aeY9f1Ji~Tests ~

~7 bullbullbulll-~ - _ bull bull _ - _

Th~i~ middotis-inc~~~g evidencif that th~ tcentst pr~ltUresin place in yen$~U~~t~~u~e_lair pJa-yXor ttSt)~bjects~ft~ tb~tmiddotth~ infrared

iDaelJll~~ reqqired by the~w are accuratecanci teliable In what is ~~~~pg~I~~~~k c~e-in~~e fi~Ilt4Sat~ 6fJV~~Je~se~ v Andrew l)omiddot~m~ et ~l~Jle Supreme Co~ of ~~wJeJSeyhel4~tpat ~ch tes~~

~~c~~~~~~~~in~ ~gt ~ ~~~~ gt ~ ~ We-areconfiaenn~tcontInti~useoftheb~atfW~rwjllnot lead to unjustmiddot~~~vleti9~-The ~le~~ ~deii~ IS m9tet9ii~1~ive now t~tve(iliat ~e cbilQCe$of-ove~ti~m~tjonmiddot are ~Jaotdnarily ~

sm~l1middotmiddot middot ~fTbe b~ath~~er ismiddotmiddot)i~asSedin -i~ cQinbined pr~~ticalitymiddotmiddotampil4 use~~ssh em OJ he low side 111 a sl8nficant nu~ber ofcases in-order not to overestimate bloodmiddotatcoholin the

middotmiddotgreaies~j)ossibenumoer OfC8Ses~ Wi~e~ ~Vinlted this ~jusifiable middotmiddotiifltgtr4~r to furthermiddot the legislatures wilt ~rid middotmaiDtmefficiency in cmiddot

oiu~ystemQtJustiCeP ~ _ lt1middot~~middotmiddotmiddotmiddot ~t~ ~ ~ -~~ - -- ~

TheVqwnie tilSe is especially valu~bl~ ~ec~use ~lt)stl9f tJte leading expert~lp the ftefd~pPearcentd and teslifiea5othaftheNew Jersey court had tliebeilefjLofan extraordinarily comigtlet~ ~cord uponwhich to base ~its decision The Downie case reduCes concerns about the

and ~reliability of the breath~test middotJlJachines ~urTentIy permitted by MaSsachusetts law ~- ~

The ieliabiii~y of current technology is beco~ngless of an issue Deliberations jQ Massachusetts can ther~fore f~cus on whether the state wants accurate evidence of alcohol impairment and to what extent it wants such evidence not how the test is administered or whether it is accurate

Stall of Nlw Jersey v Andrew Downie e al 569 A2d 242 (NJ 1990) page 251

25

r J I

bull ~J~i~t Ri ~ gt i~mrmiddot1 ~ middoti~~~~ lt~~~~~$ ~~ ~~~a~~mber) (lIe~fet) middotSiilpeDsl~as ~UI~~its~Cn$ 1

- middot~I986~ middot38iO~9middot - 9449 middot2S NA J I middotmiddott~~l~ t~a8J66o c ~~ 13510 36 2608C)middotd

middotmiddotI~~~J~ i~~~~l~ 3~C ~~ml

1middotgt~~atePcrst A~(iifil~CI oVCrsi8h middott cStima te ~ ~ -I

sect~lIlc MA~J5~centlsirY ~pdotor ~Chi~ICS _ ~l I ~~ gt1 i

~ 1

Ij~~~~~~ qgt ~~~ceJ986~middott~ep~rC~iltage of pe~onsr~fus1Dg~o J~e a breath

orJ)loOd~tes( aft~r arrest for drunk dtiving hasJncreased 44 - p~~~n~lrising f~Qll2S percent to 36 ~rc~rttlt

middot ltOut of33imiddot7~ p~~pl~ -yenr~ted -fo~ dru~dri~i~gj~Massachushy 0 middotsettsciuiiJig-198~12279people refused to take abfeath or blood test -and~()nly U~639 actually took a breath ormiddot bl~od test arter ~ JliTestmiddotmiddot -

bull Registry ~tMotor Vehicles and Office of Alcohol Testing reports do not indicate and cannot account for whether or not 9791 of the states 23918 dnitlk driving offendersin- 1989 were offered a breath or blood testand whether they took or refusedihat test

26 SENATE - No 1900 [December

Ie Of the 11639 offenders who consentedmiddott~ a ~~eath or biood test in 1989o~y6998 haeJ theirJicensessus~middotnded under the provi- sionS of~he-~aamimstraiivePerse role

There ~r~-three~~se~o~ pr~bienis jItlieM~~~b~~etts implied consent ~trategy Firsimany offellders are tefusittjto take a test

~ 1~~~~~~~1~~~~ ~t~~ t~1~~4la~e~~e~ fir~t offe~ders ar~~~soretusing~o t~eth~eSF D~ng thepcriodlt

froQll9ampampto-1982)ii~)1mrber of people refuSing teiake the test has rise~ 44 p~r~ent froJl2S percent of those aITested1t) -36 percent of

those arrested gt ~ - bullbull

~ The iniat~forinfor first a~d ~~c~rilaquo(offe~(etproampraritsoffermiddot middot8ddtiQna~vid~Jice- diat the proportion or-clients refUsing middotto take a

~br~at~ tcentsectt~~ter middotmiddot~IT~~tmiddot ~as risen sharply Alice~ t981 andsecond p~ngers il~e)nu~h~orelikeryo refus~ to take~he middottestmiddot During

calepdar ~~rmiddot1989~ percent ~f the second- offendcrs ad~tted to the i4-ltiyiJogran1reported thalt~ey hadiefus~to take abreath

~ bull 0 bull _ bull bull

test c()mp~ to a 33 percent nite for flr$t~offen4eIS ~ The CoDinu)nwealtIj therefore~ must prosecute 8Imost two-thirds

of its drunk drivers without scientific eViden~ - cd imp8irment Mo~eover~J~e pr~s~~i~penalty structure is~i~~ffecii~e~I~ca~mgthe

vast majorityof dninkdrivers to ~onsend~the ~r~th t~~t Second roughly oile-tbird ofthosewhp~taketb-e bteatbmiddot test and

arefoundtohave alllgh blood aicohol conce~tratioiaren~(getting their licenses suspended Of the 33709 peopie ~~lor drunk driving in MaJossachusetts duIjng 1989 onlyOne-third were documentedHo havetaken a blood alcoh()tteStaftetartestOf those who were dricume~ied to have taken the test (rQtU the Commonshywealths testing experience we could estimate tha~IO800 of these individuals would have had a blood level conCentration of at least 010)8 However datfl from the Registry of Mot~~ Vehicles show that only 6998 persons were suspended under the middotmiddotadininistrative per se provisions All 10800 of those who would have tested above 010 percent however would have been subject to an immediate license

Accordinl to data from the Office of Alcohol Testing only 63 percent of those persons tested durin fiscal year 1989 and 62 percent of those per50m tested during fISCal year 1990 recorded test results of

BACs below 010 percent Given these results it is likely that of the 11639 tests administered in 19Z9 10800 would have BACs higher than 010 percent

SENATE - No 1900 27

suspension 81 aiJai~~e~~there is no ~1earieasonfor the states failuftnO suspen(J the licenSes of Offenders Th~third pio~~em W(~hthe statesimplementatlonoftbe implied

~ consent law is~lli~p~o~ie~tr~cor4 ~eep~ng p1cent riu~ber of people who refuse thehteath~iYi~fan(fthosewho takethe test~c~ouni for only10S perCcent~t9(tat~~~~irestslt ~~very ~isl~rbi~g t~~t_ the state ~l~0~acc9ui1~fqr~t~qpL~Opercent ~I itscaSeSltt~~ ~ gt~_

Sorn~Qf-tht(~uiirepq~~d casestn~y~ hav~ bcent~J)middot~p cit~~mstaJices wheii~~~poli~~iriad(~aij~~ts gtwithOut offerbigtbe tesi niis oCcurs

-J ~ r middot~middotmiddot-i~ middotr~ - __ r - - - -

wh~~ ~secteCp~~~ofic~r ~~np( ~v~ljPJ~ t~_ ~it_n~~~~h~ ~esliHr wheremiddot thercent it~no qualifiedbreadttest oper~tor prese1itcFhi~oC(ursmore

middot~~ f ~ ~ bull - bull ~ bullbull J - - bullbull ~ _ j J bull bull _ bull bullbullbullbull shy

fr~qu~ritlYin_~PIaJ~r~pat1ments Tlielaw r~quir~llfa(iirtJl~)vent

thatt~~lis~~J~fu~~~gta-~cp~~ical test- wh~n~qqe~ted tli~ officer L~c Jiii~gfli~treq~~sfsli~lf~piJllediately prepar~ a~ptfenlepqFrof s1ch ~ ~ ~ jrrefusaIarid~ thtfthis r~phifmust bet end()rseltt6y~tliirdpeison ~who -~~-~~bad i~iiesseltl jJ1~refu~Waowever~hetej~nsect Way Q~o~what _-

r ~ tOpartQfJhe 30middotpe~ntojdie unreported casesis1111Ci tQ t~i~Teason~2o lt gtj q ~ltmiddotgtgtigt lt ~-

~ ~i~ SECT10N FO_~ s~~~~~y ANDRECO~~~~J~r~~N~ Cle~rly the G6Q1ni~n~ealths comQ1itDen( ~~diu~~ driving ~iet1tnce hasti~n i~~oya~~~e s~bst~tial~a~~ sfifssf~~Glt~n~es

10 law~ and recentc()urt de~ls10ns aff~tm~ ltabiAty~for d(Unk dnv10g -accid~iltShave h~(f asigl~ant influence on red~~iiig~r11nk4riving as diq iip~reAAe~rl~welif()rcenient The Com~dilw~a~li~s~~uccess is

also ~itti~utahdo strongpuhlic awareness andconce51L~(ltliedeshydine indrinkll)g~~and thechanging demographicsOf (lie dpving popuI~tion middotfmiddot

Alsltgt in spiie6f noticeable decreases in sevetal~n1nk driving countermeasuresduring tlle latter years of the decade state efforts to deter and identify drunk driving during the years 1980~to 1989 far surpassed the efforts made in the preceding decade (see Table V)

9 MGL Chapter 90 Section 24(1)

20 The Commonwealth must address the problem of circumstances arising when there is no witness to a test Just as local fire departments frequently rely on mutual assistance from other communities police departments must make arrangements for mutunl aid cr for centrJlizeltesting of drunk drivers especially in the more rural areas of the state

c

13

i

- f -- ~ _ gt bull $ -

~i~-~~(~~ ~ ~ ~~ middot(Jey FW4iDgS~ ~ -

- ~_~ _~ ~~ ~ g- ~~ 1__ I bull J

bull ASS1~~~nts-to middotir8t offender programs hv~middot d~crea$ed 20 perceilrsincefis~aLyear 1985i mirroringJh~~~hllng auest tate

bull A~sigriments to the second ~ffenders piogr~~h~lV~deereaSed bull lo _ (

but te-middotdeclirie~has not been as sharp-as fQrthe first offender

(- ~ J)rosr~~ -~ imiddot cmiddotbullbull ~~-- r middotltThe Departme~t of Public 9f Health r~portsltthat while the

frequenCy o~adtni$~i()ns to th~ 14-day trtmen~J)r()gram has middotdecreasedover the last~five years~the demographic cJtaracteristics of fitstand $~cond offender drunk dovers have rem~ined fairly cOnstant includingtheir aver~ge age (approximately 31 ye~s)middot Furthermore inmiddot 1989 when there-were 33709 arrests 2550 drtink drivers (76 percentwent to jail in 1984 when 39912 drunk drivers were arrested 2006 of them were sent to jail (50 percent)

bull bullbull bull

17

~

~ middotc~)middotmiddot ~

~

- gt ~ -ilt c

-

bull gt

accur~~y

SENATE No~ -1900

[December - -1

sECnorit~REE I~~VESIN ~IMPLtEi)CONSENT J - po ~ _ --- ro bull

Int~ s~ctio~iof- themiddotr~o~ve 10~ka M~sa~hu~itS~ experience withf~tiilg for~lPt~xication~ nctthe implied conselli law Wcentthen e~amirttlieinw~~f~e~~~p~6(J~~ li~ on~~ain~s aDdmiddot~nmiddot

Ul~eqr~~ineDt ~syst~in ~a~~()Y~~1detltifY thieemiddotprD~~erils with - ~hcentJa~~s~tnp~~~atiQ~th~q~ngmiddoti~reflS~middotrat~1ui1ohgdet8iJl~s

middotmiddot(middot~~middotfP~~~q~I~~ac~~e~~~t~cen~e~sus~~i~~(~h~~~ ~hp ~emiddotil1e- test and faiJ~middot~iidfinaJI~tl1flack9fjdequat~iecoidsmiddotQllwhether the test was iidfu1nister~accepted middotormiddotfCieetectmiddot gt

~~~~jgtt~middotc~-ltmiddot TJ~(~ic~aeY9f1Ji~Tests ~

~7 bullbullbulll-~ - _ bull bull _ - _

Th~i~ middotis-inc~~~g evidencif that th~ tcentst pr~ltUresin place in yen$~U~~t~~u~e_lair pJa-yXor ttSt)~bjects~ft~ tb~tmiddotth~ infrared

iDaelJll~~ reqqired by the~w are accuratecanci teliable In what is ~~~~pg~I~~~~k c~e-in~~e fi~Ilt4Sat~ 6fJV~~Je~se~ v Andrew l)omiddot~m~ et ~l~Jle Supreme Co~ of ~~wJeJSeyhel4~tpat ~ch tes~~

~~c~~~~~~~~in~ ~gt ~ ~~~~ gt ~ ~ We-areconfiaenn~tcontInti~useoftheb~atfW~rwjllnot lead to unjustmiddot~~~vleti9~-The ~le~~ ~deii~ IS m9tet9ii~1~ive now t~tve(iliat ~e cbilQCe$of-ove~ti~m~tjonmiddot are ~Jaotdnarily ~

sm~l1middotmiddot middot ~fTbe b~ath~~er ismiddotmiddot)i~asSedin -i~ cQinbined pr~~ticalitymiddotmiddotampil4 use~~ssh em OJ he low side 111 a sl8nficant nu~ber ofcases in-order not to overestimate bloodmiddotatcoholin the

middotmiddotgreaies~j)ossibenumoer OfC8Ses~ Wi~e~ ~Vinlted this ~jusifiable middotmiddotiifltgtr4~r to furthermiddot the legislatures wilt ~rid middotmaiDtmefficiency in cmiddot

oiu~ystemQtJustiCeP ~ _ lt1middot~~middotmiddotmiddotmiddot ~t~ ~ ~ -~~ - -- ~

TheVqwnie tilSe is especially valu~bl~ ~ec~use ~lt)stl9f tJte leading expert~lp the ftefd~pPearcentd and teslifiea5othaftheNew Jersey court had tliebeilefjLofan extraordinarily comigtlet~ ~cord uponwhich to base ~its decision The Downie case reduCes concerns about the

and ~reliability of the breath~test middotJlJachines ~urTentIy permitted by MaSsachusetts law ~- ~

The ieliabiii~y of current technology is beco~ngless of an issue Deliberations jQ Massachusetts can ther~fore f~cus on whether the state wants accurate evidence of alcohol impairment and to what extent it wants such evidence not how the test is administered or whether it is accurate

Stall of Nlw Jersey v Andrew Downie e al 569 A2d 242 (NJ 1990) page 251

25

r J I

bull ~J~i~t Ri ~ gt i~mrmiddot1 ~ middoti~~~~ lt~~~~~$ ~~ ~~~a~~mber) (lIe~fet) middotSiilpeDsl~as ~UI~~its~Cn$ 1

- middot~I986~ middot38iO~9middot - 9449 middot2S NA J I middotmiddott~~l~ t~a8J66o c ~~ 13510 36 2608C)middotd

middotmiddotI~~~J~ i~~~~l~ 3~C ~~ml

1middotgt~~atePcrst A~(iifil~CI oVCrsi8h middott cStima te ~ ~ -I

sect~lIlc MA~J5~centlsirY ~pdotor ~Chi~ICS _ ~l I ~~ gt1 i

~ 1

Ij~~~~~~ qgt ~~~ceJ986~middott~ep~rC~iltage of pe~onsr~fus1Dg~o J~e a breath

orJ)loOd~tes( aft~r arrest for drunk dtiving hasJncreased 44 - p~~~n~lrising f~Qll2S percent to 36 ~rc~rttlt

middot ltOut of33imiddot7~ p~~pl~ -yenr~ted -fo~ dru~dri~i~gj~Massachushy 0 middotsettsciuiiJig-198~12279people refused to take abfeath or blood test -and~()nly U~639 actually took a breath ormiddot bl~od test arter ~ JliTestmiddotmiddot -

bull Registry ~tMotor Vehicles and Office of Alcohol Testing reports do not indicate and cannot account for whether or not 9791 of the states 23918 dnitlk driving offendersin- 1989 were offered a breath or blood testand whether they took or refusedihat test

26 SENATE - No 1900 [December

Ie Of the 11639 offenders who consentedmiddott~ a ~~eath or biood test in 1989o~y6998 haeJ theirJicensessus~middotnded under the provi- sionS of~he-~aamimstraiivePerse role

There ~r~-three~~se~o~ pr~bienis jItlieM~~~b~~etts implied consent ~trategy Firsimany offellders are tefusittjto take a test

~ 1~~~~~~~1~~~~ ~t~~ t~1~~4la~e~~e~ fir~t offe~ders ar~~~soretusing~o t~eth~eSF D~ng thepcriodlt

froQll9ampampto-1982)ii~)1mrber of people refuSing teiake the test has rise~ 44 p~r~ent froJl2S percent of those aITested1t) -36 percent of

those arrested gt ~ - bullbull

~ The iniat~forinfor first a~d ~~c~rilaquo(offe~(etproampraritsoffermiddot middot8ddtiQna~vid~Jice- diat the proportion or-clients refUsing middotto take a

~br~at~ tcentsectt~~ter middotmiddot~IT~~tmiddot ~as risen sharply Alice~ t981 andsecond p~ngers il~e)nu~h~orelikeryo refus~ to take~he middottestmiddot During

calepdar ~~rmiddot1989~ percent ~f the second- offendcrs ad~tted to the i4-ltiyiJogran1reported thalt~ey hadiefus~to take abreath

~ bull 0 bull _ bull bull

test c()mp~ to a 33 percent nite for flr$t~offen4eIS ~ The CoDinu)nwealtIj therefore~ must prosecute 8Imost two-thirds

of its drunk drivers without scientific eViden~ - cd imp8irment Mo~eover~J~e pr~s~~i~penalty structure is~i~~ffecii~e~I~ca~mgthe

vast majorityof dninkdrivers to ~onsend~the ~r~th t~~t Second roughly oile-tbird ofthosewhp~taketb-e bteatbmiddot test and

arefoundtohave alllgh blood aicohol conce~tratioiaren~(getting their licenses suspended Of the 33709 peopie ~~lor drunk driving in MaJossachusetts duIjng 1989 onlyOne-third were documentedHo havetaken a blood alcoh()tteStaftetartestOf those who were dricume~ied to have taken the test (rQtU the Commonshywealths testing experience we could estimate tha~IO800 of these individuals would have had a blood level conCentration of at least 010)8 However datfl from the Registry of Mot~~ Vehicles show that only 6998 persons were suspended under the middotmiddotadininistrative per se provisions All 10800 of those who would have tested above 010 percent however would have been subject to an immediate license

Accordinl to data from the Office of Alcohol Testing only 63 percent of those persons tested durin fiscal year 1989 and 62 percent of those per50m tested during fISCal year 1990 recorded test results of

BACs below 010 percent Given these results it is likely that of the 11639 tests administered in 19Z9 10800 would have BACs higher than 010 percent

SENATE - No 1900 27

suspension 81 aiJai~~e~~there is no ~1earieasonfor the states failuftnO suspen(J the licenSes of Offenders Th~third pio~~em W(~hthe statesimplementatlonoftbe implied

~ consent law is~lli~p~o~ie~tr~cor4 ~eep~ng p1cent riu~ber of people who refuse thehteath~iYi~fan(fthosewho takethe test~c~ouni for only10S perCcent~t9(tat~~~~irestslt ~~very ~isl~rbi~g t~~t_ the state ~l~0~acc9ui1~fqr~t~qpL~Opercent ~I itscaSeSltt~~ ~ gt~_

Sorn~Qf-tht(~uiirepq~~d casestn~y~ hav~ bcent~J)middot~p cit~~mstaJices wheii~~~poli~~iriad(~aij~~ts gtwithOut offerbigtbe tesi niis oCcurs

-J ~ r middot~middotmiddot-i~ middotr~ - __ r - - - -

wh~~ ~secteCp~~~ofic~r ~~np( ~v~ljPJ~ t~_ ~it_n~~~~h~ ~esliHr wheremiddot thercent it~no qualifiedbreadttest oper~tor prese1itcFhi~oC(ursmore

middot~~ f ~ ~ bull - bull ~ bullbull J - - bullbull ~ _ j J bull bull _ bull bullbullbullbull shy

fr~qu~ritlYin_~PIaJ~r~pat1ments Tlielaw r~quir~llfa(iirtJl~)vent

thatt~~lis~~J~fu~~~gta-~cp~~ical test- wh~n~qqe~ted tli~ officer L~c Jiii~gfli~treq~~sfsli~lf~piJllediately prepar~ a~ptfenlepqFrof s1ch ~ ~ ~ jrrefusaIarid~ thtfthis r~phifmust bet end()rseltt6y~tliirdpeison ~who -~~-~~bad i~iiesseltl jJ1~refu~Waowever~hetej~nsect Way Q~o~what _-

r ~ tOpartQfJhe 30middotpe~ntojdie unreported casesis1111Ci tQ t~i~Teason~2o lt gtj q ~ltmiddotgtgtigt lt ~-

~ ~i~ SECT10N FO_~ s~~~~~y ANDRECO~~~~J~r~~N~ Cle~rly the G6Q1ni~n~ealths comQ1itDen( ~~diu~~ driving ~iet1tnce hasti~n i~~oya~~~e s~bst~tial~a~~ sfifssf~~Glt~n~es

10 law~ and recentc()urt de~ls10ns aff~tm~ ltabiAty~for d(Unk dnv10g -accid~iltShave h~(f asigl~ant influence on red~~iiig~r11nk4riving as diq iip~reAAe~rl~welif()rcenient The Com~dilw~a~li~s~~uccess is

also ~itti~utahdo strongpuhlic awareness andconce51L~(ltliedeshydine indrinkll)g~~and thechanging demographicsOf (lie dpving popuI~tion middotfmiddot

Alsltgt in spiie6f noticeable decreases in sevetal~n1nk driving countermeasuresduring tlle latter years of the decade state efforts to deter and identify drunk driving during the years 1980~to 1989 far surpassed the efforts made in the preceding decade (see Table V)

9 MGL Chapter 90 Section 24(1)

20 The Commonwealth must address the problem of circumstances arising when there is no witness to a test Just as local fire departments frequently rely on mutual assistance from other communities police departments must make arrangements for mutunl aid cr for centrJlizeltesting of drunk drivers especially in the more rural areas of the state

bull bullbull bull

17

~

~ middotc~)middotmiddot ~

~

- gt ~ -ilt c

-

bull gt

accur~~y

SENATE No~ -1900

[December - -1

sECnorit~REE I~~VESIN ~IMPLtEi)CONSENT J - po ~ _ --- ro bull

Int~ s~ctio~iof- themiddotr~o~ve 10~ka M~sa~hu~itS~ experience withf~tiilg for~lPt~xication~ nctthe implied conselli law Wcentthen e~amirttlieinw~~f~e~~~p~6(J~~ li~ on~~ain~s aDdmiddot~nmiddot

Ul~eqr~~ineDt ~syst~in ~a~~()Y~~1detltifY thieemiddotprD~~erils with - ~hcentJa~~s~tnp~~~atiQ~th~q~ngmiddoti~reflS~middotrat~1ui1ohgdet8iJl~s

middotmiddot(middot~~middotfP~~~q~I~~ac~~e~~~t~cen~e~sus~~i~~(~h~~~ ~hp ~emiddotil1e- test and faiJ~middot~iidfinaJI~tl1flack9fjdequat~iecoidsmiddotQllwhether the test was iidfu1nister~accepted middotormiddotfCieetectmiddot gt

~~~~jgtt~middotc~-ltmiddot TJ~(~ic~aeY9f1Ji~Tests ~

~7 bullbullbulll-~ - _ bull bull _ - _

Th~i~ middotis-inc~~~g evidencif that th~ tcentst pr~ltUresin place in yen$~U~~t~~u~e_lair pJa-yXor ttSt)~bjects~ft~ tb~tmiddotth~ infrared

iDaelJll~~ reqqired by the~w are accuratecanci teliable In what is ~~~~pg~I~~~~k c~e-in~~e fi~Ilt4Sat~ 6fJV~~Je~se~ v Andrew l)omiddot~m~ et ~l~Jle Supreme Co~ of ~~wJeJSeyhel4~tpat ~ch tes~~

~~c~~~~~~~~in~ ~gt ~ ~~~~ gt ~ ~ We-areconfiaenn~tcontInti~useoftheb~atfW~rwjllnot lead to unjustmiddot~~~vleti9~-The ~le~~ ~deii~ IS m9tet9ii~1~ive now t~tve(iliat ~e cbilQCe$of-ove~ti~m~tjonmiddot are ~Jaotdnarily ~

sm~l1middotmiddot middot ~fTbe b~ath~~er ismiddotmiddot)i~asSedin -i~ cQinbined pr~~ticalitymiddotmiddotampil4 use~~ssh em OJ he low side 111 a sl8nficant nu~ber ofcases in-order not to overestimate bloodmiddotatcoholin the

middotmiddotgreaies~j)ossibenumoer OfC8Ses~ Wi~e~ ~Vinlted this ~jusifiable middotmiddotiifltgtr4~r to furthermiddot the legislatures wilt ~rid middotmaiDtmefficiency in cmiddot

oiu~ystemQtJustiCeP ~ _ lt1middot~~middotmiddotmiddotmiddot ~t~ ~ ~ -~~ - -- ~

TheVqwnie tilSe is especially valu~bl~ ~ec~use ~lt)stl9f tJte leading expert~lp the ftefd~pPearcentd and teslifiea5othaftheNew Jersey court had tliebeilefjLofan extraordinarily comigtlet~ ~cord uponwhich to base ~its decision The Downie case reduCes concerns about the

and ~reliability of the breath~test middotJlJachines ~urTentIy permitted by MaSsachusetts law ~- ~

The ieliabiii~y of current technology is beco~ngless of an issue Deliberations jQ Massachusetts can ther~fore f~cus on whether the state wants accurate evidence of alcohol impairment and to what extent it wants such evidence not how the test is administered or whether it is accurate

Stall of Nlw Jersey v Andrew Downie e al 569 A2d 242 (NJ 1990) page 251

25

r J I

bull ~J~i~t Ri ~ gt i~mrmiddot1 ~ middoti~~~~ lt~~~~~$ ~~ ~~~a~~mber) (lIe~fet) middotSiilpeDsl~as ~UI~~its~Cn$ 1

- middot~I986~ middot38iO~9middot - 9449 middot2S NA J I middotmiddott~~l~ t~a8J66o c ~~ 13510 36 2608C)middotd

middotmiddotI~~~J~ i~~~~l~ 3~C ~~ml

1middotgt~~atePcrst A~(iifil~CI oVCrsi8h middott cStima te ~ ~ -I

sect~lIlc MA~J5~centlsirY ~pdotor ~Chi~ICS _ ~l I ~~ gt1 i

~ 1

Ij~~~~~~ qgt ~~~ceJ986~middott~ep~rC~iltage of pe~onsr~fus1Dg~o J~e a breath

orJ)loOd~tes( aft~r arrest for drunk dtiving hasJncreased 44 - p~~~n~lrising f~Qll2S percent to 36 ~rc~rttlt

middot ltOut of33imiddot7~ p~~pl~ -yenr~ted -fo~ dru~dri~i~gj~Massachushy 0 middotsettsciuiiJig-198~12279people refused to take abfeath or blood test -and~()nly U~639 actually took a breath ormiddot bl~od test arter ~ JliTestmiddotmiddot -

bull Registry ~tMotor Vehicles and Office of Alcohol Testing reports do not indicate and cannot account for whether or not 9791 of the states 23918 dnitlk driving offendersin- 1989 were offered a breath or blood testand whether they took or refusedihat test

26 SENATE - No 1900 [December

Ie Of the 11639 offenders who consentedmiddott~ a ~~eath or biood test in 1989o~y6998 haeJ theirJicensessus~middotnded under the provi- sionS of~he-~aamimstraiivePerse role

There ~r~-three~~se~o~ pr~bienis jItlieM~~~b~~etts implied consent ~trategy Firsimany offellders are tefusittjto take a test

~ 1~~~~~~~1~~~~ ~t~~ t~1~~4la~e~~e~ fir~t offe~ders ar~~~soretusing~o t~eth~eSF D~ng thepcriodlt

froQll9ampampto-1982)ii~)1mrber of people refuSing teiake the test has rise~ 44 p~r~ent froJl2S percent of those aITested1t) -36 percent of

those arrested gt ~ - bullbull

~ The iniat~forinfor first a~d ~~c~rilaquo(offe~(etproampraritsoffermiddot middot8ddtiQna~vid~Jice- diat the proportion or-clients refUsing middotto take a

~br~at~ tcentsectt~~ter middotmiddot~IT~~tmiddot ~as risen sharply Alice~ t981 andsecond p~ngers il~e)nu~h~orelikeryo refus~ to take~he middottestmiddot During

calepdar ~~rmiddot1989~ percent ~f the second- offendcrs ad~tted to the i4-ltiyiJogran1reported thalt~ey hadiefus~to take abreath

~ bull 0 bull _ bull bull

test c()mp~ to a 33 percent nite for flr$t~offen4eIS ~ The CoDinu)nwealtIj therefore~ must prosecute 8Imost two-thirds

of its drunk drivers without scientific eViden~ - cd imp8irment Mo~eover~J~e pr~s~~i~penalty structure is~i~~ffecii~e~I~ca~mgthe

vast majorityof dninkdrivers to ~onsend~the ~r~th t~~t Second roughly oile-tbird ofthosewhp~taketb-e bteatbmiddot test and

arefoundtohave alllgh blood aicohol conce~tratioiaren~(getting their licenses suspended Of the 33709 peopie ~~lor drunk driving in MaJossachusetts duIjng 1989 onlyOne-third were documentedHo havetaken a blood alcoh()tteStaftetartestOf those who were dricume~ied to have taken the test (rQtU the Commonshywealths testing experience we could estimate tha~IO800 of these individuals would have had a blood level conCentration of at least 010)8 However datfl from the Registry of Mot~~ Vehicles show that only 6998 persons were suspended under the middotmiddotadininistrative per se provisions All 10800 of those who would have tested above 010 percent however would have been subject to an immediate license

Accordinl to data from the Office of Alcohol Testing only 63 percent of those persons tested durin fiscal year 1989 and 62 percent of those per50m tested during fISCal year 1990 recorded test results of

BACs below 010 percent Given these results it is likely that of the 11639 tests administered in 19Z9 10800 would have BACs higher than 010 percent

SENATE - No 1900 27

suspension 81 aiJai~~e~~there is no ~1earieasonfor the states failuftnO suspen(J the licenSes of Offenders Th~third pio~~em W(~hthe statesimplementatlonoftbe implied

~ consent law is~lli~p~o~ie~tr~cor4 ~eep~ng p1cent riu~ber of people who refuse thehteath~iYi~fan(fthosewho takethe test~c~ouni for only10S perCcent~t9(tat~~~~irestslt ~~very ~isl~rbi~g t~~t_ the state ~l~0~acc9ui1~fqr~t~qpL~Opercent ~I itscaSeSltt~~ ~ gt~_

Sorn~Qf-tht(~uiirepq~~d casestn~y~ hav~ bcent~J)middot~p cit~~mstaJices wheii~~~poli~~iriad(~aij~~ts gtwithOut offerbigtbe tesi niis oCcurs

-J ~ r middot~middotmiddot-i~ middotr~ - __ r - - - -

wh~~ ~secteCp~~~ofic~r ~~np( ~v~ljPJ~ t~_ ~it_n~~~~h~ ~esliHr wheremiddot thercent it~no qualifiedbreadttest oper~tor prese1itcFhi~oC(ursmore

middot~~ f ~ ~ bull - bull ~ bullbull J - - bullbull ~ _ j J bull bull _ bull bullbullbullbull shy

fr~qu~ritlYin_~PIaJ~r~pat1ments Tlielaw r~quir~llfa(iirtJl~)vent

thatt~~lis~~J~fu~~~gta-~cp~~ical test- wh~n~qqe~ted tli~ officer L~c Jiii~gfli~treq~~sfsli~lf~piJllediately prepar~ a~ptfenlepqFrof s1ch ~ ~ ~ jrrefusaIarid~ thtfthis r~phifmust bet end()rseltt6y~tliirdpeison ~who -~~-~~bad i~iiesseltl jJ1~refu~Waowever~hetej~nsect Way Q~o~what _-

r ~ tOpartQfJhe 30middotpe~ntojdie unreported casesis1111Ci tQ t~i~Teason~2o lt gtj q ~ltmiddotgtgtigt lt ~-

~ ~i~ SECT10N FO_~ s~~~~~y ANDRECO~~~~J~r~~N~ Cle~rly the G6Q1ni~n~ealths comQ1itDen( ~~diu~~ driving ~iet1tnce hasti~n i~~oya~~~e s~bst~tial~a~~ sfifssf~~Glt~n~es

10 law~ and recentc()urt de~ls10ns aff~tm~ ltabiAty~for d(Unk dnv10g -accid~iltShave h~(f asigl~ant influence on red~~iiig~r11nk4riving as diq iip~reAAe~rl~welif()rcenient The Com~dilw~a~li~s~~uccess is

also ~itti~utahdo strongpuhlic awareness andconce51L~(ltliedeshydine indrinkll)g~~and thechanging demographicsOf (lie dpving popuI~tion middotfmiddot

Alsltgt in spiie6f noticeable decreases in sevetal~n1nk driving countermeasuresduring tlle latter years of the decade state efforts to deter and identify drunk driving during the years 1980~to 1989 far surpassed the efforts made in the preceding decade (see Table V)

9 MGL Chapter 90 Section 24(1)

20 The Commonwealth must address the problem of circumstances arising when there is no witness to a test Just as local fire departments frequently rely on mutual assistance from other communities police departments must make arrangements for mutunl aid cr for centrJlizeltesting of drunk drivers especially in the more rural areas of the state

25

r J I

bull ~J~i~t Ri ~ gt i~mrmiddot1 ~ middoti~~~~ lt~~~~~$ ~~ ~~~a~~mber) (lIe~fet) middotSiilpeDsl~as ~UI~~its~Cn$ 1

- middot~I986~ middot38iO~9middot - 9449 middot2S NA J I middotmiddott~~l~ t~a8J66o c ~~ 13510 36 2608C)middotd

middotmiddotI~~~J~ i~~~~l~ 3~C ~~ml

1middotgt~~atePcrst A~(iifil~CI oVCrsi8h middott cStima te ~ ~ -I

sect~lIlc MA~J5~centlsirY ~pdotor ~Chi~ICS _ ~l I ~~ gt1 i

~ 1

Ij~~~~~~ qgt ~~~ceJ986~middott~ep~rC~iltage of pe~onsr~fus1Dg~o J~e a breath

orJ)loOd~tes( aft~r arrest for drunk dtiving hasJncreased 44 - p~~~n~lrising f~Qll2S percent to 36 ~rc~rttlt

middot ltOut of33imiddot7~ p~~pl~ -yenr~ted -fo~ dru~dri~i~gj~Massachushy 0 middotsettsciuiiJig-198~12279people refused to take abfeath or blood test -and~()nly U~639 actually took a breath ormiddot bl~od test arter ~ JliTestmiddotmiddot -

bull Registry ~tMotor Vehicles and Office of Alcohol Testing reports do not indicate and cannot account for whether or not 9791 of the states 23918 dnitlk driving offendersin- 1989 were offered a breath or blood testand whether they took or refusedihat test

26 SENATE - No 1900 [December

Ie Of the 11639 offenders who consentedmiddott~ a ~~eath or biood test in 1989o~y6998 haeJ theirJicensessus~middotnded under the provi- sionS of~he-~aamimstraiivePerse role

There ~r~-three~~se~o~ pr~bienis jItlieM~~~b~~etts implied consent ~trategy Firsimany offellders are tefusittjto take a test

~ 1~~~~~~~1~~~~ ~t~~ t~1~~4la~e~~e~ fir~t offe~ders ar~~~soretusing~o t~eth~eSF D~ng thepcriodlt

froQll9ampampto-1982)ii~)1mrber of people refuSing teiake the test has rise~ 44 p~r~ent froJl2S percent of those aITested1t) -36 percent of

those arrested gt ~ - bullbull

~ The iniat~forinfor first a~d ~~c~rilaquo(offe~(etproampraritsoffermiddot middot8ddtiQna~vid~Jice- diat the proportion or-clients refUsing middotto take a

~br~at~ tcentsectt~~ter middotmiddot~IT~~tmiddot ~as risen sharply Alice~ t981 andsecond p~ngers il~e)nu~h~orelikeryo refus~ to take~he middottestmiddot During

calepdar ~~rmiddot1989~ percent ~f the second- offendcrs ad~tted to the i4-ltiyiJogran1reported thalt~ey hadiefus~to take abreath

~ bull 0 bull _ bull bull

test c()mp~ to a 33 percent nite for flr$t~offen4eIS ~ The CoDinu)nwealtIj therefore~ must prosecute 8Imost two-thirds

of its drunk drivers without scientific eViden~ - cd imp8irment Mo~eover~J~e pr~s~~i~penalty structure is~i~~ffecii~e~I~ca~mgthe

vast majorityof dninkdrivers to ~onsend~the ~r~th t~~t Second roughly oile-tbird ofthosewhp~taketb-e bteatbmiddot test and

arefoundtohave alllgh blood aicohol conce~tratioiaren~(getting their licenses suspended Of the 33709 peopie ~~lor drunk driving in MaJossachusetts duIjng 1989 onlyOne-third were documentedHo havetaken a blood alcoh()tteStaftetartestOf those who were dricume~ied to have taken the test (rQtU the Commonshywealths testing experience we could estimate tha~IO800 of these individuals would have had a blood level conCentration of at least 010)8 However datfl from the Registry of Mot~~ Vehicles show that only 6998 persons were suspended under the middotmiddotadininistrative per se provisions All 10800 of those who would have tested above 010 percent however would have been subject to an immediate license

Accordinl to data from the Office of Alcohol Testing only 63 percent of those persons tested durin fiscal year 1989 and 62 percent of those per50m tested during fISCal year 1990 recorded test results of

BACs below 010 percent Given these results it is likely that of the 11639 tests administered in 19Z9 10800 would have BACs higher than 010 percent

SENATE - No 1900 27

suspension 81 aiJai~~e~~there is no ~1earieasonfor the states failuftnO suspen(J the licenSes of Offenders Th~third pio~~em W(~hthe statesimplementatlonoftbe implied

~ consent law is~lli~p~o~ie~tr~cor4 ~eep~ng p1cent riu~ber of people who refuse thehteath~iYi~fan(fthosewho takethe test~c~ouni for only10S perCcent~t9(tat~~~~irestslt ~~very ~isl~rbi~g t~~t_ the state ~l~0~acc9ui1~fqr~t~qpL~Opercent ~I itscaSeSltt~~ ~ gt~_

Sorn~Qf-tht(~uiirepq~~d casestn~y~ hav~ bcent~J)middot~p cit~~mstaJices wheii~~~poli~~iriad(~aij~~ts gtwithOut offerbigtbe tesi niis oCcurs

-J ~ r middot~middotmiddot-i~ middotr~ - __ r - - - -

wh~~ ~secteCp~~~ofic~r ~~np( ~v~ljPJ~ t~_ ~it_n~~~~h~ ~esliHr wheremiddot thercent it~no qualifiedbreadttest oper~tor prese1itcFhi~oC(ursmore

middot~~ f ~ ~ bull - bull ~ bullbull J - - bullbull ~ _ j J bull bull _ bull bullbullbullbull shy

fr~qu~ritlYin_~PIaJ~r~pat1ments Tlielaw r~quir~llfa(iirtJl~)vent

thatt~~lis~~J~fu~~~gta-~cp~~ical test- wh~n~qqe~ted tli~ officer L~c Jiii~gfli~treq~~sfsli~lf~piJllediately prepar~ a~ptfenlepqFrof s1ch ~ ~ ~ jrrefusaIarid~ thtfthis r~phifmust bet end()rseltt6y~tliirdpeison ~who -~~-~~bad i~iiesseltl jJ1~refu~Waowever~hetej~nsect Way Q~o~what _-

r ~ tOpartQfJhe 30middotpe~ntojdie unreported casesis1111Ci tQ t~i~Teason~2o lt gtj q ~ltmiddotgtgtigt lt ~-

~ ~i~ SECT10N FO_~ s~~~~~y ANDRECO~~~~J~r~~N~ Cle~rly the G6Q1ni~n~ealths comQ1itDen( ~~diu~~ driving ~iet1tnce hasti~n i~~oya~~~e s~bst~tial~a~~ sfifssf~~Glt~n~es

10 law~ and recentc()urt de~ls10ns aff~tm~ ltabiAty~for d(Unk dnv10g -accid~iltShave h~(f asigl~ant influence on red~~iiig~r11nk4riving as diq iip~reAAe~rl~welif()rcenient The Com~dilw~a~li~s~~uccess is

also ~itti~utahdo strongpuhlic awareness andconce51L~(ltliedeshydine indrinkll)g~~and thechanging demographicsOf (lie dpving popuI~tion middotfmiddot

Alsltgt in spiie6f noticeable decreases in sevetal~n1nk driving countermeasuresduring tlle latter years of the decade state efforts to deter and identify drunk driving during the years 1980~to 1989 far surpassed the efforts made in the preceding decade (see Table V)

9 MGL Chapter 90 Section 24(1)

20 The Commonwealth must address the problem of circumstances arising when there is no witness to a test Just as local fire departments frequently rely on mutual assistance from other communities police departments must make arrangements for mutunl aid cr for centrJlizeltesting of drunk drivers especially in the more rural areas of the state

26 SENATE - No 1900 [December

Ie Of the 11639 offenders who consentedmiddott~ a ~~eath or biood test in 1989o~y6998 haeJ theirJicensessus~middotnded under the provi- sionS of~he-~aamimstraiivePerse role

There ~r~-three~~se~o~ pr~bienis jItlieM~~~b~~etts implied consent ~trategy Firsimany offellders are tefusittjto take a test

~ 1~~~~~~~1~~~~ ~t~~ t~1~~4la~e~~e~ fir~t offe~ders ar~~~soretusing~o t~eth~eSF D~ng thepcriodlt

froQll9ampampto-1982)ii~)1mrber of people refuSing teiake the test has rise~ 44 p~r~ent froJl2S percent of those aITested1t) -36 percent of

those arrested gt ~ - bullbull

~ The iniat~forinfor first a~d ~~c~rilaquo(offe~(etproampraritsoffermiddot middot8ddtiQna~vid~Jice- diat the proportion or-clients refUsing middotto take a

~br~at~ tcentsectt~~ter middotmiddot~IT~~tmiddot ~as risen sharply Alice~ t981 andsecond p~ngers il~e)nu~h~orelikeryo refus~ to take~he middottestmiddot During

calepdar ~~rmiddot1989~ percent ~f the second- offendcrs ad~tted to the i4-ltiyiJogran1reported thalt~ey hadiefus~to take abreath

~ bull 0 bull _ bull bull

test c()mp~ to a 33 percent nite for flr$t~offen4eIS ~ The CoDinu)nwealtIj therefore~ must prosecute 8Imost two-thirds

of its drunk drivers without scientific eViden~ - cd imp8irment Mo~eover~J~e pr~s~~i~penalty structure is~i~~ffecii~e~I~ca~mgthe

vast majorityof dninkdrivers to ~onsend~the ~r~th t~~t Second roughly oile-tbird ofthosewhp~taketb-e bteatbmiddot test and

arefoundtohave alllgh blood aicohol conce~tratioiaren~(getting their licenses suspended Of the 33709 peopie ~~lor drunk driving in MaJossachusetts duIjng 1989 onlyOne-third were documentedHo havetaken a blood alcoh()tteStaftetartestOf those who were dricume~ied to have taken the test (rQtU the Commonshywealths testing experience we could estimate tha~IO800 of these individuals would have had a blood level conCentration of at least 010)8 However datfl from the Registry of Mot~~ Vehicles show that only 6998 persons were suspended under the middotmiddotadininistrative per se provisions All 10800 of those who would have tested above 010 percent however would have been subject to an immediate license

Accordinl to data from the Office of Alcohol Testing only 63 percent of those persons tested durin fiscal year 1989 and 62 percent of those per50m tested during fISCal year 1990 recorded test results of

BACs below 010 percent Given these results it is likely that of the 11639 tests administered in 19Z9 10800 would have BACs higher than 010 percent

SENATE - No 1900 27

suspension 81 aiJai~~e~~there is no ~1earieasonfor the states failuftnO suspen(J the licenSes of Offenders Th~third pio~~em W(~hthe statesimplementatlonoftbe implied

~ consent law is~lli~p~o~ie~tr~cor4 ~eep~ng p1cent riu~ber of people who refuse thehteath~iYi~fan(fthosewho takethe test~c~ouni for only10S perCcent~t9(tat~~~~irestslt ~~very ~isl~rbi~g t~~t_ the state ~l~0~acc9ui1~fqr~t~qpL~Opercent ~I itscaSeSltt~~ ~ gt~_

Sorn~Qf-tht(~uiirepq~~d casestn~y~ hav~ bcent~J)middot~p cit~~mstaJices wheii~~~poli~~iriad(~aij~~ts gtwithOut offerbigtbe tesi niis oCcurs

-J ~ r middot~middotmiddot-i~ middotr~ - __ r - - - -

wh~~ ~secteCp~~~ofic~r ~~np( ~v~ljPJ~ t~_ ~it_n~~~~h~ ~esliHr wheremiddot thercent it~no qualifiedbreadttest oper~tor prese1itcFhi~oC(ursmore

middot~~ f ~ ~ bull - bull ~ bullbull J - - bullbull ~ _ j J bull bull _ bull bullbullbullbull shy

fr~qu~ritlYin_~PIaJ~r~pat1ments Tlielaw r~quir~llfa(iirtJl~)vent

thatt~~lis~~J~fu~~~gta-~cp~~ical test- wh~n~qqe~ted tli~ officer L~c Jiii~gfli~treq~~sfsli~lf~piJllediately prepar~ a~ptfenlepqFrof s1ch ~ ~ ~ jrrefusaIarid~ thtfthis r~phifmust bet end()rseltt6y~tliirdpeison ~who -~~-~~bad i~iiesseltl jJ1~refu~Waowever~hetej~nsect Way Q~o~what _-

r ~ tOpartQfJhe 30middotpe~ntojdie unreported casesis1111Ci tQ t~i~Teason~2o lt gtj q ~ltmiddotgtgtigt lt ~-

~ ~i~ SECT10N FO_~ s~~~~~y ANDRECO~~~~J~r~~N~ Cle~rly the G6Q1ni~n~ealths comQ1itDen( ~~diu~~ driving ~iet1tnce hasti~n i~~oya~~~e s~bst~tial~a~~ sfifssf~~Glt~n~es

10 law~ and recentc()urt de~ls10ns aff~tm~ ltabiAty~for d(Unk dnv10g -accid~iltShave h~(f asigl~ant influence on red~~iiig~r11nk4riving as diq iip~reAAe~rl~welif()rcenient The Com~dilw~a~li~s~~uccess is

also ~itti~utahdo strongpuhlic awareness andconce51L~(ltliedeshydine indrinkll)g~~and thechanging demographicsOf (lie dpving popuI~tion middotfmiddot

Alsltgt in spiie6f noticeable decreases in sevetal~n1nk driving countermeasuresduring tlle latter years of the decade state efforts to deter and identify drunk driving during the years 1980~to 1989 far surpassed the efforts made in the preceding decade (see Table V)

9 MGL Chapter 90 Section 24(1)

20 The Commonwealth must address the problem of circumstances arising when there is no witness to a test Just as local fire departments frequently rely on mutual assistance from other communities police departments must make arrangements for mutunl aid cr for centrJlizeltesting of drunk drivers especially in the more rural areas of the state

SENATE - No 1900 27

suspension 81 aiJai~~e~~there is no ~1earieasonfor the states failuftnO suspen(J the licenSes of Offenders Th~third pio~~em W(~hthe statesimplementatlonoftbe implied

~ consent law is~lli~p~o~ie~tr~cor4 ~eep~ng p1cent riu~ber of people who refuse thehteath~iYi~fan(fthosewho takethe test~c~ouni for only10S perCcent~t9(tat~~~~irestslt ~~very ~isl~rbi~g t~~t_ the state ~l~0~acc9ui1~fqr~t~qpL~Opercent ~I itscaSeSltt~~ ~ gt~_

Sorn~Qf-tht(~uiirepq~~d casestn~y~ hav~ bcent~J)middot~p cit~~mstaJices wheii~~~poli~~iriad(~aij~~ts gtwithOut offerbigtbe tesi niis oCcurs

-J ~ r middot~middotmiddot-i~ middotr~ - __ r - - - -

wh~~ ~secteCp~~~ofic~r ~~np( ~v~ljPJ~ t~_ ~it_n~~~~h~ ~esliHr wheremiddot thercent it~no qualifiedbreadttest oper~tor prese1itcFhi~oC(ursmore

middot~~ f ~ ~ bull - bull ~ bullbull J - - bullbull ~ _ j J bull bull _ bull bullbullbullbull shy

fr~qu~ritlYin_~PIaJ~r~pat1ments Tlielaw r~quir~llfa(iirtJl~)vent

thatt~~lis~~J~fu~~~gta-~cp~~ical test- wh~n~qqe~ted tli~ officer L~c Jiii~gfli~treq~~sfsli~lf~piJllediately prepar~ a~ptfenlepqFrof s1ch ~ ~ ~ jrrefusaIarid~ thtfthis r~phifmust bet end()rseltt6y~tliirdpeison ~who -~~-~~bad i~iiesseltl jJ1~refu~Waowever~hetej~nsect Way Q~o~what _-

r ~ tOpartQfJhe 30middotpe~ntojdie unreported casesis1111Ci tQ t~i~Teason~2o lt gtj q ~ltmiddotgtgtigt lt ~-

~ ~i~ SECT10N FO_~ s~~~~~y ANDRECO~~~~J~r~~N~ Cle~rly the G6Q1ni~n~ealths comQ1itDen( ~~diu~~ driving ~iet1tnce hasti~n i~~oya~~~e s~bst~tial~a~~ sfifssf~~Glt~n~es

10 law~ and recentc()urt de~ls10ns aff~tm~ ltabiAty~for d(Unk dnv10g -accid~iltShave h~(f asigl~ant influence on red~~iiig~r11nk4riving as diq iip~reAAe~rl~welif()rcenient The Com~dilw~a~li~s~~uccess is

also ~itti~utahdo strongpuhlic awareness andconce51L~(ltliedeshydine indrinkll)g~~and thechanging demographicsOf (lie dpving popuI~tion middotfmiddot

Alsltgt in spiie6f noticeable decreases in sevetal~n1nk driving countermeasuresduring tlle latter years of the decade state efforts to deter and identify drunk driving during the years 1980~to 1989 far surpassed the efforts made in the preceding decade (see Table V)

9 MGL Chapter 90 Section 24(1)

20 The Commonwealth must address the problem of circumstances arising when there is no witness to a test Just as local fire departments frequently rely on mutual assistance from other communities police departments must make arrangements for mutunl aid cr for centrJlizeltesting of drunk drivers especially in the more rural areas of the state

SENATE -No 1910 _[December

J980J~9

34422lt1

iasOQO

~S)Q~

Il610

~~ - ~

K~YFiii~ings ~~~~ ~~ J flt _ ~ ~ -11~~~ ~~ ~ - --

o)dOre than1wice as many drurllf diivii1g atrestswere made in - _ - ~~ bull ~ - - bull --bullbull - - bull

~ -tJte198~tban w~~ mld~ mtc 1~7OS ~ _ - bull - -~ - - j -- - _ bull - - bull

bull ThreeJmies1lSmany people we~middotassigDed tolcoltoIe4lic lion __ ~--1Ihd rehaffilitatiOnprogiams dUrlfig the198OSu durin~ the1970s

-- li618ciknk drivers went~ ~t~ jiiLbetwei~ 1980 and 1989 cOmparedio the approXimatelYAOOjailed dunng the i910s

bullp~gi~~middoti980s-25~ seco~~~off~~d~isetite~thel4day re~iderii~featmentPTopam ~atie~ than pend ti~e inJ~

~ ~~ ~ bull ~ -- bullbull OJ

Th~expen6itUre of milliQjl$otpubliedoll~Qvet th~ last decade to detetdlu~driVing hasmiddotneVerb~n c~anenged ~ unneCesSary or _- - wastcentful On-tbe contrary ~any wouldargUe that far too little bas shybeen spent given the magnitude of lhe middotprob1em A~rdilig to shyestimates from the National Highway Traffic Safety Administration in 1986 the cost to society of each person killed in a fatal crash was 5358060 (5393866 in 1989 dollars) shy

1990) SENATE - No 1900 29

$ shy

21 Minnesotamp using a roadside survey bas been able to document tbat tle number of people driving drun has declined substantially during the 19805 This survey also demonstrates tbat Minnesota police patroUing in a slate with 42 percent fewer licensed drivers lh n Massachusetts arrested more drunk drivers th(l Massachusells police

30 ltSENATE - No 1900 [December

2 The LeciS~~e should increase the incentiva for bktnamp the breatha1J~ test sothat there Is a stronj incentive for every driver

ltI ~f ~ ~ bullto take breath test - ~

M~saciiuS~t~ ~houidlth~gcentitS ~na1tlt~inici~~ ~o that the suspeitsi9nJQimiddotref~ing to t~~ a ~tlt~~loOdtest is middottwice as strong middotijthH~n~tYJD[~biktn-gJhemiddottes and ~(jngit In Massac)wsetts~the

~iifdf2~iffer~~l)~weeit the 12~ ~axPeil1ijty forteSt ietusailnd the _ ~-a~y~n~~ltfo middottailingthe teSii$~~j adisincel1~ve fotpeople

~to~taJe -the JjteathiIYierJesigtWitliincreasing~Viden~t these tests c-_- - ~-lt - ~ ~-- t -- bull - ~ ~ shy

ar~rep~1i~~ ai) middottti~middotimportance~l1at ~ij~e tC~ts play D obtJiirlng a dri~ A- middot~ing~~qdvrci~n middotth~ s~t~s~ciulf1middotniike ~~erY ~ff~rt ~ohave testr~~J(sgtftotlrt ~ry ~~oii ~~tedfQr4riink dd~ng

lt middotFuritlerinOietgt~tf1e stai~ sboU1(Jihcre~ penaities for breath test refP~l~y~ecoha~ilT tlUfdOffeiuteg fh~iejSno j~tifiaDle reason for repeat offendersi(f1jemiddotableto contblue to~ijfu~~ tblakca br~athalyzer ~tes~bull ~tmiddot~~ lt lt- -~~~ ~- ~~~ ~ ~ bull -gt

3- 1elw~erifOtCenieilteolDlllunityilioiJldmiddoteyeloploeaI mutual~ce peemeotsaQlaquoI pool r-esOuitdto reducetlledumber oftests ~ Dotpven beeampuSeofin$tiftideDtWttn~~

ThemiddotnO~9C~liQr ~Dii~terirtg the ~~yenailialY~~ tes~ r~~~es that if a persQJ( r~useS middotthe police offieermiddots teq~~ttbat he or she ~e the~ testt that~ r~rus81 m~st )e witnes~ed by ~tbird ~fSon~ Smallermiddot police bull depart~eritsin mQre rural parts of~he~s~e mayfiild it Clifficult to have W~ftfice~ ~v~able ~otmiddot 3dminist~nnttlte t~st~middot1he govem~rt state offials~ an~ll~al pohce 4epartm~ll~ sh9uld~ork to 4~velop middotmutualasistucente ~protoco1s to ~nrDiiZcentthen~rmiddotof cases when

the test cannot bemiddot offered When other officers cannot be called int there $hoUld be agteemcmts in place so that~the testmiddot can be

adminbt~~ed at ~~b~ nearest state poiice bair-acks or police headqu~~rs that isadequatelymiddot staffed i

4 Stat~ and comunity leaders sbouldmiddot coJitm~e efforts to keep public attention on tbe dangers of drinking d driVing

The elimination ofdrunk driving dependson keeping the issue alive in the publics mind The states governmental and private sector leaders should support continued public education to ensure that the roads of the Commonwealth remain safe at all hours of the day or night

~

~fP~middoti~ - ---

~

~ shy

SENATE No 19M

1

~

~~ ~ ~

I

-

October 1981 ~ lt

~

Novembtr 1988

j shy

~~ -

-~ f bullbull J

r SENATE-~ NoUoo

bull _ ~ bull bull bull bullbullbull ~Jbullbull ~

- __ _-__-shy

oL-__ _--l __~__ __--ll_~_~

UII-SII _ pln 8pIIl-tpllI pm-12111 12m-3am sa-ea hili-12ft

Time of Day fM1I (tHO ecrtIoft) I~noe MRute lor Hltlla aalay_Mate Itoa Avdlt and overalOlI 12110

[

1990] middoti SENATE - No 1900 33

~ APPENDIX C ~

-

middotFATALMOTOR VEHICtiCRASHES ~Nilt nay Cpmp~D

~ ~970_ i989 -

1910- - 503 321 i980 578 ~gt 234 ~ 1971 gt stY - -310middot 198i- 480~209

197f~ 555 350 1982378 ~ 230 gtc - 1973 580-- 348 1983 383 215

-~gt ) 1974 middotS66middot 294 - 1984 - 404middot 203 ~--middotJ97S- -54lt(-middot- 266 1985 389 298

- ~-) bull - ~ bull 0 _ -

1916 49-3 224-1986 409-- 271shy 1917 4S6middot~~ 226 ~tl987 394 248lt

gt1978 546 244 1988~ 383 272 1979 629 228 middotmiddotmiddotmiddotmiddot1989 356 - 260

bull bull ~- lt bull -

- - ~ _ ~-~ ~~

TOTAL 5385 2817 TOTAt 4~54 2440

Source M8ssa~husetts Registry of Motor Vehicles I L~ ~ L

~

34 -

- SENATE - Nobullbull900 [December

_ APPENDIX D-

Yeo truhe5 ~

middot1977 237 1978303

1979middot 336 1980 311 1981255 1982 1983 1984 1985206

- 1986228

1987 219 1988212 -

1989 195

SourceMass~~~~setts kegistry ofM~tor ebicies

36

SENATE - Nobull1900 [December

OTII~R R~PQRTS IN T~ 1989~I990 LEGIS~AnVEY~AR BY THE SENATE POST AUDIT AND OVERSIGHTBUREAU

gt- ~ - lt~ ~ ~ -- December 1990ftbOCAL~GOVERNMENT F1NANCE IN 199H ~ ~ - - ~ - ---~ - ~-bull~~ -

middotmiddotTheCnslsmiddotContinueslt ~

NQv~mbe~lm~~tHEADutTCO~RECribTiAL EDUCATION ) middotPItOGJtAMmiddotOFmiddot~Ti(E~ MASSACH1JSETTS

middotmiddotmiddotmiddotSgtmiddot~DEPARTMENT OFeuroQRRECTION ~A Penor- -- ~ bull t --

ltmiddotmiddotjDanCeAudit (S 18S0Vmiddot - ~

ampt~amp~ J990~ENDQWMENTd~~ELOPMiNt -INMAssAshy --eHUSE1ispuin~ICmiddotluG ERSDUCATION

ltgt i~(Si810) ~ -=- ~~

AU~~ middoti~A~~STUDIESI1PU~LJt~O~STRUciION _rhe Impact of CbaptetS79bfthe Actsmiddot of-1980

ii middot~~~Zist~OFFl~t~L~kR1989 DEPART- I middotmiddotMENT- OF MENTAt~HEATHALLOCATIONS

(5 1715) ~ middotA -~ AN INVESTME~YgtONmiddotRE URNSMarkeUng Recyclable~Materials InmiddotMuampachusetts (S IS85) -

February 1990~THEDEC~MBER 1989iji~TItf(iOIL CRISIS middotlaquoS 1501) - ~ -

February 1990 nRAWniG QNPvBLIC~middotAtJTamiddotORITIES RESOURCES TO REDUCEABUDOETGAP

bull Learning from New Yofk ($lsOO) i

December 1989 REPORT TO THE-MASSACHUSETTS G~NERAL COURT Findings Relative to the Commonwealths Deferred Compensation Plan (5 2150)

December 1989 LOCAL GOVERNMENT FINANCE IN 1990 An Unfolding Crisis (S 2130)

November 1989 ANALYSIS OF THE STATES FISCAL CRISIS (S2125)

SENATE No1

MASSACHUSETIS FINANCIAL COMMITshyt

~)4ENTrOPU LIC~PVeuro-ATION A MUlti-State Compai tive Study (S 2080)

Oci~ber 1989 bENYINGACCESS TO CARE~ Discrimination Agains~Persons with lIIV-lrifecjion (S 2040)

~ ~

-

1hia Documen~ Hu Been Printed On l~ Recycled Paper

1990) SENATE - No 1900 29

$ shy

21 Minnesotamp using a roadside survey bas been able to document tbat tle number of people driving drun has declined substantially during the 19805 This survey also demonstrates tbat Minnesota police patroUing in a slate with 42 percent fewer licensed drivers lh n Massachusetts arrested more drunk drivers th(l Massachusells police

30 ltSENATE - No 1900 [December

2 The LeciS~~e should increase the incentiva for bktnamp the breatha1J~ test sothat there Is a stronj incentive for every driver

ltI ~f ~ ~ bullto take breath test - ~

M~saciiuS~t~ ~houidlth~gcentitS ~na1tlt~inici~~ ~o that the suspeitsi9nJQimiddotref~ing to t~~ a ~tlt~~loOdtest is middottwice as strong middotijthH~n~tYJD[~biktn-gJhemiddottes and ~(jngit In Massac)wsetts~the

~iifdf2~iffer~~l)~weeit the 12~ ~axPeil1ijty forteSt ietusailnd the _ ~-a~y~n~~ltfo middottailingthe teSii$~~j adisincel1~ve fotpeople

~to~taJe -the JjteathiIYierJesigtWitliincreasing~Viden~t these tests c-_- - ~-lt - ~ ~-- t -- bull - ~ ~ shy

ar~rep~1i~~ ai) middottti~middotimportance~l1at ~ij~e tC~ts play D obtJiirlng a dri~ A- middot~ing~~qdvrci~n middotth~ s~t~s~ciulf1middotniike ~~erY ~ff~rt ~ohave testr~~J(sgtftotlrt ~ry ~~oii ~~tedfQr4riink dd~ng

lt middotFuritlerinOietgt~tf1e stai~ sboU1(Jihcre~ penaities for breath test refP~l~y~ecoha~ilT tlUfdOffeiuteg fh~iejSno j~tifiaDle reason for repeat offendersi(f1jemiddotableto contblue to~ijfu~~ tblakca br~athalyzer ~tes~bull ~tmiddot~~ lt lt- -~~~ ~- ~~~ ~ ~ bull -gt

3- 1elw~erifOtCenieilteolDlllunityilioiJldmiddoteyeloploeaI mutual~ce peemeotsaQlaquoI pool r-esOuitdto reducetlledumber oftests ~ Dotpven beeampuSeofin$tiftideDtWttn~~

ThemiddotnO~9C~liQr ~Dii~terirtg the ~~yenailialY~~ tes~ r~~~es that if a persQJ( r~useS middotthe police offieermiddots teq~~ttbat he or she ~e the~ testt that~ r~rus81 m~st )e witnes~ed by ~tbird ~fSon~ Smallermiddot police bull depart~eritsin mQre rural parts of~he~s~e mayfiild it Clifficult to have W~ftfice~ ~v~able ~otmiddot 3dminist~nnttlte t~st~middot1he govem~rt state offials~ an~ll~al pohce 4epartm~ll~ sh9uld~ork to 4~velop middotmutualasistucente ~protoco1s to ~nrDiiZcentthen~rmiddotof cases when

the test cannot bemiddot offered When other officers cannot be called int there $hoUld be agteemcmts in place so that~the testmiddot can be

adminbt~~ed at ~~b~ nearest state poiice bair-acks or police headqu~~rs that isadequatelymiddot staffed i

4 Stat~ and comunity leaders sbouldmiddot coJitm~e efforts to keep public attention on tbe dangers of drinking d driVing

The elimination ofdrunk driving dependson keeping the issue alive in the publics mind The states governmental and private sector leaders should support continued public education to ensure that the roads of the Commonwealth remain safe at all hours of the day or night

~

~fP~middoti~ - ---

~

~ shy

SENATE No 19M

1

~

~~ ~ ~

I

-

October 1981 ~ lt

~

Novembtr 1988

j shy

~~ -

-~ f bullbull J

r SENATE-~ NoUoo

bull _ ~ bull bull bull bullbullbull ~Jbullbull ~

- __ _-__-shy

oL-__ _--l __~__ __--ll_~_~

UII-SII _ pln 8pIIl-tpllI pm-12111 12m-3am sa-ea hili-12ft

Time of Day fM1I (tHO ecrtIoft) I~noe MRute lor Hltlla aalay_Mate Itoa Avdlt and overalOlI 12110

[

1990] middoti SENATE - No 1900 33

~ APPENDIX C ~

-

middotFATALMOTOR VEHICtiCRASHES ~Nilt nay Cpmp~D

~ ~970_ i989 -

1910- - 503 321 i980 578 ~gt 234 ~ 1971 gt stY - -310middot 198i- 480~209

197f~ 555 350 1982378 ~ 230 gtc - 1973 580-- 348 1983 383 215

-~gt ) 1974 middotS66middot 294 - 1984 - 404middot 203 ~--middotJ97S- -54lt(-middot- 266 1985 389 298

- ~-) bull - ~ bull 0 _ -

1916 49-3 224-1986 409-- 271shy 1917 4S6middot~~ 226 ~tl987 394 248lt

gt1978 546 244 1988~ 383 272 1979 629 228 middotmiddotmiddotmiddotmiddot1989 356 - 260

bull bull ~- lt bull -

- - ~ _ ~-~ ~~

TOTAL 5385 2817 TOTAt 4~54 2440

Source M8ssa~husetts Registry of Motor Vehicles I L~ ~ L

~

34 -

- SENATE - Nobullbull900 [December

_ APPENDIX D-

Yeo truhe5 ~

middot1977 237 1978303

1979middot 336 1980 311 1981255 1982 1983 1984 1985206

- 1986228

1987 219 1988212 -

1989 195

SourceMass~~~~setts kegistry ofM~tor ebicies

36

SENATE - Nobull1900 [December

OTII~R R~PQRTS IN T~ 1989~I990 LEGIS~AnVEY~AR BY THE SENATE POST AUDIT AND OVERSIGHTBUREAU

gt- ~ - lt~ ~ ~ -- December 1990ftbOCAL~GOVERNMENT F1NANCE IN 199H ~ ~ - - ~ - ---~ - ~-bull~~ -

middotmiddotTheCnslsmiddotContinueslt ~

NQv~mbe~lm~~tHEADutTCO~RECribTiAL EDUCATION ) middotPItOGJtAMmiddotOFmiddot~Ti(E~ MASSACH1JSETTS

middotmiddotmiddotmiddotSgtmiddot~DEPARTMENT OFeuroQRRECTION ~A Penor- -- ~ bull t --

ltmiddotmiddotjDanCeAudit (S 18S0Vmiddot - ~

ampt~amp~ J990~ENDQWMENTd~~ELOPMiNt -INMAssAshy --eHUSE1ispuin~ICmiddotluG ERSDUCATION

ltgt i~(Si810) ~ -=- ~~

AU~~ middoti~A~~STUDIESI1PU~LJt~O~STRUciION _rhe Impact of CbaptetS79bfthe Actsmiddot of-1980

ii middot~~~Zist~OFFl~t~L~kR1989 DEPART- I middotmiddotMENT- OF MENTAt~HEATHALLOCATIONS

(5 1715) ~ middotA -~ AN INVESTME~YgtONmiddotRE URNSMarkeUng Recyclable~Materials InmiddotMuampachusetts (S IS85) -

February 1990~THEDEC~MBER 1989iji~TItf(iOIL CRISIS middotlaquoS 1501) - ~ -

February 1990 nRAWniG QNPvBLIC~middotAtJTamiddotORITIES RESOURCES TO REDUCEABUDOETGAP

bull Learning from New Yofk ($lsOO) i

December 1989 REPORT TO THE-MASSACHUSETTS G~NERAL COURT Findings Relative to the Commonwealths Deferred Compensation Plan (5 2150)

December 1989 LOCAL GOVERNMENT FINANCE IN 1990 An Unfolding Crisis (S 2130)

November 1989 ANALYSIS OF THE STATES FISCAL CRISIS (S2125)

SENATE No1

MASSACHUSETIS FINANCIAL COMMITshyt

~)4ENTrOPU LIC~PVeuro-ATION A MUlti-State Compai tive Study (S 2080)

Oci~ber 1989 bENYINGACCESS TO CARE~ Discrimination Agains~Persons with lIIV-lrifecjion (S 2040)

~ ~

-

1hia Documen~ Hu Been Printed On l~ Recycled Paper

30 ltSENATE - No 1900 [December

2 The LeciS~~e should increase the incentiva for bktnamp the breatha1J~ test sothat there Is a stronj incentive for every driver

ltI ~f ~ ~ bullto take breath test - ~

M~saciiuS~t~ ~houidlth~gcentitS ~na1tlt~inici~~ ~o that the suspeitsi9nJQimiddotref~ing to t~~ a ~tlt~~loOdtest is middottwice as strong middotijthH~n~tYJD[~biktn-gJhemiddottes and ~(jngit In Massac)wsetts~the

~iifdf2~iffer~~l)~weeit the 12~ ~axPeil1ijty forteSt ietusailnd the _ ~-a~y~n~~ltfo middottailingthe teSii$~~j adisincel1~ve fotpeople

~to~taJe -the JjteathiIYierJesigtWitliincreasing~Viden~t these tests c-_- - ~-lt - ~ ~-- t -- bull - ~ ~ shy

ar~rep~1i~~ ai) middottti~middotimportance~l1at ~ij~e tC~ts play D obtJiirlng a dri~ A- middot~ing~~qdvrci~n middotth~ s~t~s~ciulf1middotniike ~~erY ~ff~rt ~ohave testr~~J(sgtftotlrt ~ry ~~oii ~~tedfQr4riink dd~ng

lt middotFuritlerinOietgt~tf1e stai~ sboU1(Jihcre~ penaities for breath test refP~l~y~ecoha~ilT tlUfdOffeiuteg fh~iejSno j~tifiaDle reason for repeat offendersi(f1jemiddotableto contblue to~ijfu~~ tblakca br~athalyzer ~tes~bull ~tmiddot~~ lt lt- -~~~ ~- ~~~ ~ ~ bull -gt

3- 1elw~erifOtCenieilteolDlllunityilioiJldmiddoteyeloploeaI mutual~ce peemeotsaQlaquoI pool r-esOuitdto reducetlledumber oftests ~ Dotpven beeampuSeofin$tiftideDtWttn~~

ThemiddotnO~9C~liQr ~Dii~terirtg the ~~yenailialY~~ tes~ r~~~es that if a persQJ( r~useS middotthe police offieermiddots teq~~ttbat he or she ~e the~ testt that~ r~rus81 m~st )e witnes~ed by ~tbird ~fSon~ Smallermiddot police bull depart~eritsin mQre rural parts of~he~s~e mayfiild it Clifficult to have W~ftfice~ ~v~able ~otmiddot 3dminist~nnttlte t~st~middot1he govem~rt state offials~ an~ll~al pohce 4epartm~ll~ sh9uld~ork to 4~velop middotmutualasistucente ~protoco1s to ~nrDiiZcentthen~rmiddotof cases when

the test cannot bemiddot offered When other officers cannot be called int there $hoUld be agteemcmts in place so that~the testmiddot can be

adminbt~~ed at ~~b~ nearest state poiice bair-acks or police headqu~~rs that isadequatelymiddot staffed i

4 Stat~ and comunity leaders sbouldmiddot coJitm~e efforts to keep public attention on tbe dangers of drinking d driVing

The elimination ofdrunk driving dependson keeping the issue alive in the publics mind The states governmental and private sector leaders should support continued public education to ensure that the roads of the Commonwealth remain safe at all hours of the day or night

~

~fP~middoti~ - ---

~

~ shy

SENATE No 19M

1

~

~~ ~ ~

I

-

October 1981 ~ lt

~

Novembtr 1988

j shy

~~ -

-~ f bullbull J

r SENATE-~ NoUoo

bull _ ~ bull bull bull bullbullbull ~Jbullbull ~

- __ _-__-shy

oL-__ _--l __~__ __--ll_~_~

UII-SII _ pln 8pIIl-tpllI pm-12111 12m-3am sa-ea hili-12ft

Time of Day fM1I (tHO ecrtIoft) I~noe MRute lor Hltlla aalay_Mate Itoa Avdlt and overalOlI 12110

[

1990] middoti SENATE - No 1900 33

~ APPENDIX C ~

-

middotFATALMOTOR VEHICtiCRASHES ~Nilt nay Cpmp~D

~ ~970_ i989 -

1910- - 503 321 i980 578 ~gt 234 ~ 1971 gt stY - -310middot 198i- 480~209

197f~ 555 350 1982378 ~ 230 gtc - 1973 580-- 348 1983 383 215

-~gt ) 1974 middotS66middot 294 - 1984 - 404middot 203 ~--middotJ97S- -54lt(-middot- 266 1985 389 298

- ~-) bull - ~ bull 0 _ -

1916 49-3 224-1986 409-- 271shy 1917 4S6middot~~ 226 ~tl987 394 248lt

gt1978 546 244 1988~ 383 272 1979 629 228 middotmiddotmiddotmiddotmiddot1989 356 - 260

bull bull ~- lt bull -

- - ~ _ ~-~ ~~

TOTAL 5385 2817 TOTAt 4~54 2440

Source M8ssa~husetts Registry of Motor Vehicles I L~ ~ L

~

34 -

- SENATE - Nobullbull900 [December

_ APPENDIX D-

Yeo truhe5 ~

middot1977 237 1978303

1979middot 336 1980 311 1981255 1982 1983 1984 1985206

- 1986228

1987 219 1988212 -

1989 195

SourceMass~~~~setts kegistry ofM~tor ebicies

36

SENATE - Nobull1900 [December

OTII~R R~PQRTS IN T~ 1989~I990 LEGIS~AnVEY~AR BY THE SENATE POST AUDIT AND OVERSIGHTBUREAU

gt- ~ - lt~ ~ ~ -- December 1990ftbOCAL~GOVERNMENT F1NANCE IN 199H ~ ~ - - ~ - ---~ - ~-bull~~ -

middotmiddotTheCnslsmiddotContinueslt ~

NQv~mbe~lm~~tHEADutTCO~RECribTiAL EDUCATION ) middotPItOGJtAMmiddotOFmiddot~Ti(E~ MASSACH1JSETTS

middotmiddotmiddotmiddotSgtmiddot~DEPARTMENT OFeuroQRRECTION ~A Penor- -- ~ bull t --

ltmiddotmiddotjDanCeAudit (S 18S0Vmiddot - ~

ampt~amp~ J990~ENDQWMENTd~~ELOPMiNt -INMAssAshy --eHUSE1ispuin~ICmiddotluG ERSDUCATION

ltgt i~(Si810) ~ -=- ~~

AU~~ middoti~A~~STUDIESI1PU~LJt~O~STRUciION _rhe Impact of CbaptetS79bfthe Actsmiddot of-1980

ii middot~~~Zist~OFFl~t~L~kR1989 DEPART- I middotmiddotMENT- OF MENTAt~HEATHALLOCATIONS

(5 1715) ~ middotA -~ AN INVESTME~YgtONmiddotRE URNSMarkeUng Recyclable~Materials InmiddotMuampachusetts (S IS85) -

February 1990~THEDEC~MBER 1989iji~TItf(iOIL CRISIS middotlaquoS 1501) - ~ -

February 1990 nRAWniG QNPvBLIC~middotAtJTamiddotORITIES RESOURCES TO REDUCEABUDOETGAP

bull Learning from New Yofk ($lsOO) i

December 1989 REPORT TO THE-MASSACHUSETTS G~NERAL COURT Findings Relative to the Commonwealths Deferred Compensation Plan (5 2150)

December 1989 LOCAL GOVERNMENT FINANCE IN 1990 An Unfolding Crisis (S 2130)

November 1989 ANALYSIS OF THE STATES FISCAL CRISIS (S2125)

SENATE No1

MASSACHUSETIS FINANCIAL COMMITshyt

~)4ENTrOPU LIC~PVeuro-ATION A MUlti-State Compai tive Study (S 2080)

Oci~ber 1989 bENYINGACCESS TO CARE~ Discrimination Agains~Persons with lIIV-lrifecjion (S 2040)

~ ~

-

1hia Documen~ Hu Been Printed On l~ Recycled Paper

~

~fP~middoti~ - ---

~

~ shy

SENATE No 19M

1

~

~~ ~ ~

I

-

October 1981 ~ lt

~

Novembtr 1988

j shy

~~ -

-~ f bullbull J

r SENATE-~ NoUoo

bull _ ~ bull bull bull bullbullbull ~Jbullbull ~

- __ _-__-shy

oL-__ _--l __~__ __--ll_~_~

UII-SII _ pln 8pIIl-tpllI pm-12111 12m-3am sa-ea hili-12ft

Time of Day fM1I (tHO ecrtIoft) I~noe MRute lor Hltlla aalay_Mate Itoa Avdlt and overalOlI 12110

[

1990] middoti SENATE - No 1900 33

~ APPENDIX C ~

-

middotFATALMOTOR VEHICtiCRASHES ~Nilt nay Cpmp~D

~ ~970_ i989 -

1910- - 503 321 i980 578 ~gt 234 ~ 1971 gt stY - -310middot 198i- 480~209

197f~ 555 350 1982378 ~ 230 gtc - 1973 580-- 348 1983 383 215

-~gt ) 1974 middotS66middot 294 - 1984 - 404middot 203 ~--middotJ97S- -54lt(-middot- 266 1985 389 298

- ~-) bull - ~ bull 0 _ -

1916 49-3 224-1986 409-- 271shy 1917 4S6middot~~ 226 ~tl987 394 248lt

gt1978 546 244 1988~ 383 272 1979 629 228 middotmiddotmiddotmiddotmiddot1989 356 - 260

bull bull ~- lt bull -

- - ~ _ ~-~ ~~

TOTAL 5385 2817 TOTAt 4~54 2440

Source M8ssa~husetts Registry of Motor Vehicles I L~ ~ L

~

34 -

- SENATE - Nobullbull900 [December

_ APPENDIX D-

Yeo truhe5 ~

middot1977 237 1978303

1979middot 336 1980 311 1981255 1982 1983 1984 1985206

- 1986228

1987 219 1988212 -

1989 195

SourceMass~~~~setts kegistry ofM~tor ebicies

36

SENATE - Nobull1900 [December

OTII~R R~PQRTS IN T~ 1989~I990 LEGIS~AnVEY~AR BY THE SENATE POST AUDIT AND OVERSIGHTBUREAU

gt- ~ - lt~ ~ ~ -- December 1990ftbOCAL~GOVERNMENT F1NANCE IN 199H ~ ~ - - ~ - ---~ - ~-bull~~ -

middotmiddotTheCnslsmiddotContinueslt ~

NQv~mbe~lm~~tHEADutTCO~RECribTiAL EDUCATION ) middotPItOGJtAMmiddotOFmiddot~Ti(E~ MASSACH1JSETTS

middotmiddotmiddotmiddotSgtmiddot~DEPARTMENT OFeuroQRRECTION ~A Penor- -- ~ bull t --

ltmiddotmiddotjDanCeAudit (S 18S0Vmiddot - ~

ampt~amp~ J990~ENDQWMENTd~~ELOPMiNt -INMAssAshy --eHUSE1ispuin~ICmiddotluG ERSDUCATION

ltgt i~(Si810) ~ -=- ~~

AU~~ middoti~A~~STUDIESI1PU~LJt~O~STRUciION _rhe Impact of CbaptetS79bfthe Actsmiddot of-1980

ii middot~~~Zist~OFFl~t~L~kR1989 DEPART- I middotmiddotMENT- OF MENTAt~HEATHALLOCATIONS

(5 1715) ~ middotA -~ AN INVESTME~YgtONmiddotRE URNSMarkeUng Recyclable~Materials InmiddotMuampachusetts (S IS85) -

February 1990~THEDEC~MBER 1989iji~TItf(iOIL CRISIS middotlaquoS 1501) - ~ -

February 1990 nRAWniG QNPvBLIC~middotAtJTamiddotORITIES RESOURCES TO REDUCEABUDOETGAP

bull Learning from New Yofk ($lsOO) i

December 1989 REPORT TO THE-MASSACHUSETTS G~NERAL COURT Findings Relative to the Commonwealths Deferred Compensation Plan (5 2150)

December 1989 LOCAL GOVERNMENT FINANCE IN 1990 An Unfolding Crisis (S 2130)

November 1989 ANALYSIS OF THE STATES FISCAL CRISIS (S2125)

SENATE No1

MASSACHUSETIS FINANCIAL COMMITshyt

~)4ENTrOPU LIC~PVeuro-ATION A MUlti-State Compai tive Study (S 2080)

Oci~ber 1989 bENYINGACCESS TO CARE~ Discrimination Agains~Persons with lIIV-lrifecjion (S 2040)

~ ~

-

1hia Documen~ Hu Been Printed On l~ Recycled Paper

-~ f bullbull J

r SENATE-~ NoUoo

bull _ ~ bull bull bull bullbullbull ~Jbullbull ~

- __ _-__-shy

oL-__ _--l __~__ __--ll_~_~

UII-SII _ pln 8pIIl-tpllI pm-12111 12m-3am sa-ea hili-12ft

Time of Day fM1I (tHO ecrtIoft) I~noe MRute lor Hltlla aalay_Mate Itoa Avdlt and overalOlI 12110

[

1990] middoti SENATE - No 1900 33

~ APPENDIX C ~

-

middotFATALMOTOR VEHICtiCRASHES ~Nilt nay Cpmp~D

~ ~970_ i989 -

1910- - 503 321 i980 578 ~gt 234 ~ 1971 gt stY - -310middot 198i- 480~209

197f~ 555 350 1982378 ~ 230 gtc - 1973 580-- 348 1983 383 215

-~gt ) 1974 middotS66middot 294 - 1984 - 404middot 203 ~--middotJ97S- -54lt(-middot- 266 1985 389 298

- ~-) bull - ~ bull 0 _ -

1916 49-3 224-1986 409-- 271shy 1917 4S6middot~~ 226 ~tl987 394 248lt

gt1978 546 244 1988~ 383 272 1979 629 228 middotmiddotmiddotmiddotmiddot1989 356 - 260

bull bull ~- lt bull -

- - ~ _ ~-~ ~~

TOTAL 5385 2817 TOTAt 4~54 2440

Source M8ssa~husetts Registry of Motor Vehicles I L~ ~ L

~

34 -

- SENATE - Nobullbull900 [December

_ APPENDIX D-

Yeo truhe5 ~

middot1977 237 1978303

1979middot 336 1980 311 1981255 1982 1983 1984 1985206

- 1986228

1987 219 1988212 -

1989 195

SourceMass~~~~setts kegistry ofM~tor ebicies

36

SENATE - Nobull1900 [December

OTII~R R~PQRTS IN T~ 1989~I990 LEGIS~AnVEY~AR BY THE SENATE POST AUDIT AND OVERSIGHTBUREAU

gt- ~ - lt~ ~ ~ -- December 1990ftbOCAL~GOVERNMENT F1NANCE IN 199H ~ ~ - - ~ - ---~ - ~-bull~~ -

middotmiddotTheCnslsmiddotContinueslt ~

NQv~mbe~lm~~tHEADutTCO~RECribTiAL EDUCATION ) middotPItOGJtAMmiddotOFmiddot~Ti(E~ MASSACH1JSETTS

middotmiddotmiddotmiddotSgtmiddot~DEPARTMENT OFeuroQRRECTION ~A Penor- -- ~ bull t --

ltmiddotmiddotjDanCeAudit (S 18S0Vmiddot - ~

ampt~amp~ J990~ENDQWMENTd~~ELOPMiNt -INMAssAshy --eHUSE1ispuin~ICmiddotluG ERSDUCATION

ltgt i~(Si810) ~ -=- ~~

AU~~ middoti~A~~STUDIESI1PU~LJt~O~STRUciION _rhe Impact of CbaptetS79bfthe Actsmiddot of-1980

ii middot~~~Zist~OFFl~t~L~kR1989 DEPART- I middotmiddotMENT- OF MENTAt~HEATHALLOCATIONS

(5 1715) ~ middotA -~ AN INVESTME~YgtONmiddotRE URNSMarkeUng Recyclable~Materials InmiddotMuampachusetts (S IS85) -

February 1990~THEDEC~MBER 1989iji~TItf(iOIL CRISIS middotlaquoS 1501) - ~ -

February 1990 nRAWniG QNPvBLIC~middotAtJTamiddotORITIES RESOURCES TO REDUCEABUDOETGAP

bull Learning from New Yofk ($lsOO) i

December 1989 REPORT TO THE-MASSACHUSETTS G~NERAL COURT Findings Relative to the Commonwealths Deferred Compensation Plan (5 2150)

December 1989 LOCAL GOVERNMENT FINANCE IN 1990 An Unfolding Crisis (S 2130)

November 1989 ANALYSIS OF THE STATES FISCAL CRISIS (S2125)

SENATE No1

MASSACHUSETIS FINANCIAL COMMITshyt

~)4ENTrOPU LIC~PVeuro-ATION A MUlti-State Compai tive Study (S 2080)

Oci~ber 1989 bENYINGACCESS TO CARE~ Discrimination Agains~Persons with lIIV-lrifecjion (S 2040)

~ ~

-

1hia Documen~ Hu Been Printed On l~ Recycled Paper

[

1990] middoti SENATE - No 1900 33

~ APPENDIX C ~

-

middotFATALMOTOR VEHICtiCRASHES ~Nilt nay Cpmp~D

~ ~970_ i989 -

1910- - 503 321 i980 578 ~gt 234 ~ 1971 gt stY - -310middot 198i- 480~209

197f~ 555 350 1982378 ~ 230 gtc - 1973 580-- 348 1983 383 215

-~gt ) 1974 middotS66middot 294 - 1984 - 404middot 203 ~--middotJ97S- -54lt(-middot- 266 1985 389 298

- ~-) bull - ~ bull 0 _ -

1916 49-3 224-1986 409-- 271shy 1917 4S6middot~~ 226 ~tl987 394 248lt

gt1978 546 244 1988~ 383 272 1979 629 228 middotmiddotmiddotmiddotmiddot1989 356 - 260

bull bull ~- lt bull -

- - ~ _ ~-~ ~~

TOTAL 5385 2817 TOTAt 4~54 2440

Source M8ssa~husetts Registry of Motor Vehicles I L~ ~ L

~

34 -

- SENATE - Nobullbull900 [December

_ APPENDIX D-

Yeo truhe5 ~

middot1977 237 1978303

1979middot 336 1980 311 1981255 1982 1983 1984 1985206

- 1986228

1987 219 1988212 -

1989 195

SourceMass~~~~setts kegistry ofM~tor ebicies

36

SENATE - Nobull1900 [December

OTII~R R~PQRTS IN T~ 1989~I990 LEGIS~AnVEY~AR BY THE SENATE POST AUDIT AND OVERSIGHTBUREAU

gt- ~ - lt~ ~ ~ -- December 1990ftbOCAL~GOVERNMENT F1NANCE IN 199H ~ ~ - - ~ - ---~ - ~-bull~~ -

middotmiddotTheCnslsmiddotContinueslt ~

NQv~mbe~lm~~tHEADutTCO~RECribTiAL EDUCATION ) middotPItOGJtAMmiddotOFmiddot~Ti(E~ MASSACH1JSETTS

middotmiddotmiddotmiddotSgtmiddot~DEPARTMENT OFeuroQRRECTION ~A Penor- -- ~ bull t --

ltmiddotmiddotjDanCeAudit (S 18S0Vmiddot - ~

ampt~amp~ J990~ENDQWMENTd~~ELOPMiNt -INMAssAshy --eHUSE1ispuin~ICmiddotluG ERSDUCATION

ltgt i~(Si810) ~ -=- ~~

AU~~ middoti~A~~STUDIESI1PU~LJt~O~STRUciION _rhe Impact of CbaptetS79bfthe Actsmiddot of-1980

ii middot~~~Zist~OFFl~t~L~kR1989 DEPART- I middotmiddotMENT- OF MENTAt~HEATHALLOCATIONS

(5 1715) ~ middotA -~ AN INVESTME~YgtONmiddotRE URNSMarkeUng Recyclable~Materials InmiddotMuampachusetts (S IS85) -

February 1990~THEDEC~MBER 1989iji~TItf(iOIL CRISIS middotlaquoS 1501) - ~ -

February 1990 nRAWniG QNPvBLIC~middotAtJTamiddotORITIES RESOURCES TO REDUCEABUDOETGAP

bull Learning from New Yofk ($lsOO) i

December 1989 REPORT TO THE-MASSACHUSETTS G~NERAL COURT Findings Relative to the Commonwealths Deferred Compensation Plan (5 2150)

December 1989 LOCAL GOVERNMENT FINANCE IN 1990 An Unfolding Crisis (S 2130)

November 1989 ANALYSIS OF THE STATES FISCAL CRISIS (S2125)

SENATE No1

MASSACHUSETIS FINANCIAL COMMITshyt

~)4ENTrOPU LIC~PVeuro-ATION A MUlti-State Compai tive Study (S 2080)

Oci~ber 1989 bENYINGACCESS TO CARE~ Discrimination Agains~Persons with lIIV-lrifecjion (S 2040)

~ ~

-

1hia Documen~ Hu Been Printed On l~ Recycled Paper

34 -

- SENATE - Nobullbull900 [December

_ APPENDIX D-

Yeo truhe5 ~

middot1977 237 1978303

1979middot 336 1980 311 1981255 1982 1983 1984 1985206

- 1986228

1987 219 1988212 -

1989 195

SourceMass~~~~setts kegistry ofM~tor ebicies

36

SENATE - Nobull1900 [December

OTII~R R~PQRTS IN T~ 1989~I990 LEGIS~AnVEY~AR BY THE SENATE POST AUDIT AND OVERSIGHTBUREAU

gt- ~ - lt~ ~ ~ -- December 1990ftbOCAL~GOVERNMENT F1NANCE IN 199H ~ ~ - - ~ - ---~ - ~-bull~~ -

middotmiddotTheCnslsmiddotContinueslt ~

NQv~mbe~lm~~tHEADutTCO~RECribTiAL EDUCATION ) middotPItOGJtAMmiddotOFmiddot~Ti(E~ MASSACH1JSETTS

middotmiddotmiddotmiddotSgtmiddot~DEPARTMENT OFeuroQRRECTION ~A Penor- -- ~ bull t --

ltmiddotmiddotjDanCeAudit (S 18S0Vmiddot - ~

ampt~amp~ J990~ENDQWMENTd~~ELOPMiNt -INMAssAshy --eHUSE1ispuin~ICmiddotluG ERSDUCATION

ltgt i~(Si810) ~ -=- ~~

AU~~ middoti~A~~STUDIESI1PU~LJt~O~STRUciION _rhe Impact of CbaptetS79bfthe Actsmiddot of-1980

ii middot~~~Zist~OFFl~t~L~kR1989 DEPART- I middotmiddotMENT- OF MENTAt~HEATHALLOCATIONS

(5 1715) ~ middotA -~ AN INVESTME~YgtONmiddotRE URNSMarkeUng Recyclable~Materials InmiddotMuampachusetts (S IS85) -

February 1990~THEDEC~MBER 1989iji~TItf(iOIL CRISIS middotlaquoS 1501) - ~ -

February 1990 nRAWniG QNPvBLIC~middotAtJTamiddotORITIES RESOURCES TO REDUCEABUDOETGAP

bull Learning from New Yofk ($lsOO) i

December 1989 REPORT TO THE-MASSACHUSETTS G~NERAL COURT Findings Relative to the Commonwealths Deferred Compensation Plan (5 2150)

December 1989 LOCAL GOVERNMENT FINANCE IN 1990 An Unfolding Crisis (S 2130)

November 1989 ANALYSIS OF THE STATES FISCAL CRISIS (S2125)

SENATE No1

MASSACHUSETIS FINANCIAL COMMITshyt

~)4ENTrOPU LIC~PVeuro-ATION A MUlti-State Compai tive Study (S 2080)

Oci~ber 1989 bENYINGACCESS TO CARE~ Discrimination Agains~Persons with lIIV-lrifecjion (S 2040)

~ ~

-

1hia Documen~ Hu Been Printed On l~ Recycled Paper

36

SENATE - Nobull1900 [December

OTII~R R~PQRTS IN T~ 1989~I990 LEGIS~AnVEY~AR BY THE SENATE POST AUDIT AND OVERSIGHTBUREAU

gt- ~ - lt~ ~ ~ -- December 1990ftbOCAL~GOVERNMENT F1NANCE IN 199H ~ ~ - - ~ - ---~ - ~-bull~~ -

middotmiddotTheCnslsmiddotContinueslt ~

NQv~mbe~lm~~tHEADutTCO~RECribTiAL EDUCATION ) middotPItOGJtAMmiddotOFmiddot~Ti(E~ MASSACH1JSETTS

middotmiddotmiddotmiddotSgtmiddot~DEPARTMENT OFeuroQRRECTION ~A Penor- -- ~ bull t --

ltmiddotmiddotjDanCeAudit (S 18S0Vmiddot - ~

ampt~amp~ J990~ENDQWMENTd~~ELOPMiNt -INMAssAshy --eHUSE1ispuin~ICmiddotluG ERSDUCATION

ltgt i~(Si810) ~ -=- ~~

AU~~ middoti~A~~STUDIESI1PU~LJt~O~STRUciION _rhe Impact of CbaptetS79bfthe Actsmiddot of-1980

ii middot~~~Zist~OFFl~t~L~kR1989 DEPART- I middotmiddotMENT- OF MENTAt~HEATHALLOCATIONS

(5 1715) ~ middotA -~ AN INVESTME~YgtONmiddotRE URNSMarkeUng Recyclable~Materials InmiddotMuampachusetts (S IS85) -

February 1990~THEDEC~MBER 1989iji~TItf(iOIL CRISIS middotlaquoS 1501) - ~ -

February 1990 nRAWniG QNPvBLIC~middotAtJTamiddotORITIES RESOURCES TO REDUCEABUDOETGAP

bull Learning from New Yofk ($lsOO) i

December 1989 REPORT TO THE-MASSACHUSETTS G~NERAL COURT Findings Relative to the Commonwealths Deferred Compensation Plan (5 2150)

December 1989 LOCAL GOVERNMENT FINANCE IN 1990 An Unfolding Crisis (S 2130)

November 1989 ANALYSIS OF THE STATES FISCAL CRISIS (S2125)

SENATE No1

MASSACHUSETIS FINANCIAL COMMITshyt

~)4ENTrOPU LIC~PVeuro-ATION A MUlti-State Compai tive Study (S 2080)

Oci~ber 1989 bENYINGACCESS TO CARE~ Discrimination Agains~Persons with lIIV-lrifecjion (S 2040)

~ ~

-

1hia Documen~ Hu Been Printed On l~ Recycled Paper

SENATE No1

MASSACHUSETIS FINANCIAL COMMITshyt

~)4ENTrOPU LIC~PVeuro-ATION A MUlti-State Compai tive Study (S 2080)

Oci~ber 1989 bENYINGACCESS TO CARE~ Discrimination Agains~Persons with lIIV-lrifecjion (S 2040)

~ ~

-

1hia Documen~ Hu Been Printed On l~ Recycled Paper