IGNITION INTERLOCKS: INCREASING PARTICIPATION &...
Transcript of IGNITION INTERLOCKS: INCREASING PARTICIPATION &...
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IGNITION
INTERLOCKS:
INCREASING
PARTICIPATION &
PROGRAM
EFFECTIVENESS
Tara Casanova Powell
TIRF USA
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OVERVIEW
> National annual ignition interlock survey.
> Evaluation of Ignition Interlock Programs:
Interlock Use Analysis from 28 States, 2006-
2011.
> Minnesota interlock evaluation.
> Michigan ignition interlock/sobriety court
evaluation.
> NHTSA technical assistance.
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INTERLOCK LAWS
> In January 2017, 28 states and 4 California
counties require all alcohol-impaired driving
offenders to install an interlock.
> 11 states require interlocks for offenders with a
high blood alcohol concentration (BAC) (usually
0.15% or higher) and for repeat offenders.
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INTERLOCK LAWS
> 6 states require devices only for repeat
offenders.
> 1 state (NV) require devices for high-BAC
offenders.
> 4 states do not have mandatory interlock
requirements.
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WY
WV
WI
WA
VT
VA
UT
TX
TN
SD
SC
RI
PA
OR
OK
OH
NY
NV
NM
NJNE
ND
NC
MT
MS
MO
MN
MI
ME
MD
MA
LA
KYKS
INIL
ID
IA
HI
GA
FL
DE
DC
CT
CO
CA
AZAR
AL
AK
NH
LAWS MANDATING IGNITION INTERLOCK
February 2017
Judicial discretion only
Repeat offenders
High-BAC first & repeat
All offenders
High-BAC offenders
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NATIONAL INTERLOCK SURVEY 2015
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NATIONAL INTERLOCK SURVEY 2015
> All 50 states and 11 manufacturers were
contacted in September 2015 to request arrest
and conviction data and relevant interlock data.
> Counts of total installed ignition interlocks during
a period of 1 year (12 months) in 2014, and total
installed ignition interlocks in 2015 (January 1st to
August 31st, 2015) were requested.
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NATIONAL INTERLOCK SURVEY 2015:
DEFINITIONS
> Total installed number (TIN): the number of
ignition interlock devices reported to be installed
in vehicles over a period of time.
> Active installed number (AIN): the number of
ignition interlock devices reported to be installed
in a vehicle on the date designated by this
request (i.e., a snapshot in time).
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NATIONAL INTERLOCK SURVEY 2015:
DATA REQUEST
> States were also requested to provide, if
possible, data according to offense categories.
> Offense categories were defined as:
> 1st offender "basic" DWI;
> 1st offender high-BAC DWI;
> refused test DWI and;
> repeat DWI (2nd and subsequent DWI).
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NATIONAL INTERLOCK SURVEY 2015:
STATE ARREST DATA
> DWI arrest data were requested to estimate the
number of potentially eligible offenders in each
state.
> 15 states were able to provide total DWI arrest
data for the reporting period from January 1st,
2014 to December 31st, 2014.
> 10 of these states were able to provide further
breakdowns of arrest data by offense categories.
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NATIONAL INTERLOCK SURVEY 2015:
STATE ARREST DATA
> 10 states were able to provide total DWI arrest
data for the reporting period from Jan. 1st to
August 31st, 2015.
> 7 of these states were able to provide further
breakdowns of arrest data by offense categories.
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NATIONAL INTERLOCK SURVEY 2015:
STATE CONVICTION DATA
> DWI conviction data were requested to further
identify the potential number of eligible offenders
in each state.
> 16 states were able to provide total DWI
conviction data for January 1st to December 31st,
2014.
> 9 of these states further reported breakdowns of
conviction data by offense categories.
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NATIONAL INTERLOCK SURVEY 2015:
STATE CONVICTION DATA
> 11 states were able to provide total DWI
conviction data for January 1st to August 31st,
2015.
> 7 of these states were able to further breakdown
conviction data by offense categories. Illinois was
able to report all repeat offender DWI convictions
(all 2nd and subsequent offenders).
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NATIONAL INTERLOCK SURVEY 2015:
STATE INTERLOCK DATA
> 26 states reported interlock data.
> State TIN for states that reported interlock data
January 1st to December 31st, 2014 was 141,787.
> State TIN for states that reported interlock data
January 1st to August 31st, 2015 was 110,487.
> State AIN for states that reported interlock data
December 31st, 2014 was 77,909.
> State AIN for states that reported interlock data
August 31st, 2015 was 88,194.
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NATIONAL INTERLOCK SURVEY 2015:
MANUFACTURER TIN DATA
> 8 manufacturers reported interlock data.
> TIN for manufacturers that reported interlock
data January 1st to December 31st, 2014 was
256,150.
> TIN for manufacturers who reported interlock
data January 1st to August 31st, 2015 was
191,479.
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NATIONAL INTERLOCK SURVEY 2015:
MANUFACTURER AIN DATA
> AIN for manufacturers who reported interlock
data December 31st, 2014 was 309,919.
> AIN for manufacturers who reported interlock
data for August 31st, 2015 was 328,743.
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MANUFACTURER TIN 2014
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MANUFACTURER TIN 2015
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MANUFACTURER AIN DEC 31, 2014
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MANUFACTURER AIN AUG 31, 2015
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NATIONAL INTERLOCK SURVEY 2015:
OFFENDER ELIGIBILITY
> Percentage of offenders who installed among
those who were eligible or required.
> Dependent upon legislation, eligible offenders
may include:
> those arrested for a DWI (ALR requirement) or;
> offenders convicted of a DWI (which is dependent
upon offense categories that require an interlock).
> This assumes that offenders are not deemed
ineligible for other driving violations unrelated to
DWI. 21
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NATIONAL INTERLOCK SURVEY 2015:
DISCUSSION
> Barriers that can impede states ability to provide
data:
> data capture processes vary by agency &
jurisdictions;
> states lack centralized or standardized data
collection;
> linkages between court data and DMV data are
limited;
> several states do not have the resources.
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NATIONAL INTERLOCK SURVEY 2015:
DISCUSSION
> Few states could provide data other than TIN &
AIN.
> Several states could provide data within the
project timeframe (6 months).
> Few states could provide a breakdown by
offense category.
> Accurate records and timely reporting are
essential to successful interlock programs
(Casanova Powell et al. 2015).
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NATIONAL INTERLOCK SURVEY 2015:
DISCUSSION
> Implementing automated record systems and
central repositories has been shown to improve
the availability of data in states such as Florida
and Colorado, however even these states have
room for improvement.
> If more states were able to provide these data,
more informative statistics could be calculated
and used to evaluate progress of state interlock
programs.
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EVALUATION OF STATE INTERLOCK
PROGRAMS
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EVALUATION OF STATE INTERLOCK
PROGRAMS
> GHSA/NHTSA/CDC funded, conducted by PRG.
> 3 categories of 8 keys to increase participation:
> Program design:
– requirements & penalties.
> Program management:
– monitoring, uniformity, coordination & education.
> Program support:
– resources & data.
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EVALUATION OF STATE INTERLOCK
PROGRAMS: CORRELATIONS OF KEY
RATINGS WITH IN-USE RATES
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EVALUATION OF STATE INTERLOCK
PROGRAMS: USE CHANGE RESULTS
> Required for 1st offenders: use increased in all 3
states (FL, KS, NY).
> Required for repeat or high-BAC offenders: use
increased in 3 of 4 states (MI, WV, WI,
decreased in VA).
> Required for hardship license: use increased in 2
of 3 states (IL, LA, IA-no change).
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EVALUATION OF STATE INTERLOCK
PROGRAMS: USE CHANGE RESULTS
> Interlock to reduce/eliminate license suspension
period: use increased in all 6 states (AR, CO, IA,
OR, WA, WV) .
> Management and other changes: use increased
in 7 states (CA, CO, FL, MO, NM, OK, WA).
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EVALUATION OF STATE INTERLOCK
PROGRAMS: SUCCESSES
> Legislative changes to laws and penalties:
> as state interlock programs evolve, states are
learning what works and what does not;
> many states have improved interlock
laws/programs and are working to close program
gaps.
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EVALUATION OF STATE INTERLOCK
PROGRAMS: SUCCESSES
> Monitoring offenders
> Data: states with a central repository allow for
easily accessible data to efficiently monitor
offenders and impose sanctions for violations in a
timely manner.
> Uniformity and coordination:
> Stakeholder involvement: inter-agency task forces
which include representatives from the judicial,
administrative and law enforcement agencies.
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EVALUATION OF STATE INTERLOCK
PROGRAMS: SUCCESSES
> Education
> Educating law enforcement, judges, prosecutors,
probation officers, treatment providers, and driver
licensing agency staff can improve stakeholder
interest and facilitate more effective and efficient
program implementation.
> Data/resources
> Without the ability to access reliable, shared data,
program managers are unable to efficiently
execute and evaluate their program, or monitor
offenders. 33
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DWI COURT INTERLOCK STUDIES
> Georgia:
> Repeat offenders graduating from DWI court were
65% less likely to be re-arrested.
> Between 47-112 repeat arrests were prevented.
> Michigan (analysis of 3 counties over 2 years):
> DWI court participants were 19x less likely to be
arrested for a DWI.
> Minnesota (evaluation of 9 DWI courts):
> Recidivism reduced 69% for high-risk participants.
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MICHIGAN DWI COURT PROGRAM
> Interlocks are required for participants in the
Michigan DWI Court Program.
> An interlock must be installed after 45-day hard
suspension.
> Michigan DWI Court Program is geared toward
repeat offenders.
> An ignition interlock is required on all vehicles the
DWI court participant owns/drives.
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MICHIGAN DWI COURT PROGRAM: LIMITED
DRIVING PRIVILEGE
> Allowed to drive to/from the person’s residence;
> the person’s work location;
> during the course of the person’s employment or
occupation as long as a commercial driver’s
license is not required;
> alcohol, drug or mental health education and
treatment as ordered by the court;
> AA/NA/MA or other court ordered programs.
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MICHIGAN DWI COURT PROGRAM: LIMITED
DRIVING PRIVILEGE
> Allowed to drive to/from Court hearings and
probation appointments;
> drug and alcohol testing;
> court ordered community service;
> an educational institution where enrolled;
> interlock service provider as required;
> medical treatment for a serious condition or
medical emergency, for themselves or a member
of their household or immediate family.37
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MICHIGAN DWI COURT PROGRAM:
COMPLIANCE
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MICHIGAN DWI COURT PROGRAM:
INTERLOCK STUDY
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MICHIGAN DWI COURT PROGRAM: RESULTS
> Participants showed lower DWI and recidivism
rates after 1,2,3 and 4 years.
> Participants were more likely to improve their
levels of education between the entry and exit of
program.
> Participants were less likely to test positive on
UA (tested more frequently).
> Participants incurred less jail time.
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MICHIGAN DWI COURT PROGRAM: RESULTS
> Fewer warrants issued for participants.
> Participants received higher numbers of
incentives and rewards from the courts.
> Participants attended more group meetings.
> Participants enjoyed a higher number of overall
days of sobriety.
> Participants had higher graduation rates (those
who were not under interlock supervision were
3.2 times more likely to be terminated from DWI
court.
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MINNESOTA STATE INTERLOCK PROGRAM
EVALUATION: IMPAIRED DRIVING ISSUE
> 2014-111 people killed in alcohol-related crashes.
> 31% of all traffic fatalities in Minnesota.
> 2015-137 people killed in alcohol-related crashes.
> 2,203 were injured.
> >$285 million in cost.
> Interlock law, July 1, 2011, Statute 171.306 -
Ignition Interlock Device Program.
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CURRENT LAW (MN)
> Voluntary:
> 1st and 2nd in lieu of hard revocation.
> Required:
> DWI offenders with 0.16+ alcohol concentration.
> Any vehicle or lose driving privileges:
– 1 year for 1st offense;
– 2 years for 2nd offense.
> Repeat offenders with 3+ DWIs in a 10-year period
are required to use interlocks.
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INTERLOCK PROGRAM (MN)
> Participants regain full or limited driving
privileges immediately.
> Interlocks are used to monitor chronic DWI
offenders (3 or more DWIs in a 10-year period) to
verify chemical use.
> Recent provision requires anyone cited for a
criminal vehicle operation (CVO) “bodily harm” to
“great bodily harm” to install.
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EVIDENCE-BASED PRACTICES (MN)
> All-offender eligibility;
> removal of hard suspension periods;
> performance-based exit;
> treatment, alcohol education or both.
> Since July 1, 2011, 23,115 drivers have
participated statewide.
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PARTICIPATION RESULTS (MN)
> Since July 1, 2011, 23,115 drivers have
participated statewide.
> Mix of voluntary and required participants.
> 1 in 5 eligible drivers (19.8%).
> 60% of DWI offenses first offenders, 9% of these
choose to participate.
> 62% participants were arrested for aggravated
offenses (BAC of 0.16+ or refusals.
> 40.1% of those required participated.
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PARTICIPATION RESULTS (MN)
> Varied with age, sex and urban/rural county.
> Highest participation rates:
> men;
> urban counties;
> drivers over 45 years of age;
> 45–64 age group (25.2%).
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PARTICIPATION RESULTS (MN)
> Lowest participation rates:
> women;
> rural counties;
> drivers below 34 years of age (especially those
below 24 years of age, 3.7%).
> As age increases; the opportunity to meet the
criteria for mandatory program participation also
increases.
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COMPLETION RESULTS (MN)
> Just over 48% of participants have completed the
program.
> More than 78% completed the program on time.
> The average time for successful completion is
412 days.
> Approximately one in 100 is terminated for non-
compliance.
> Revoked drivers (voluntary participation) 83.7%.
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COMPLETION RESULTS (MN)
> Canceled drivers (required participation) 27.7%
completed.
> The more severe the DWI violations at the time
of arrest, the less likely drivers will complete the
program.
> Offenders with BAC at or over 0.16 are 40% less
likely to complete the program.
> Offenders who refused tests are 50.8% less
likely to complete the program.
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RECIDIVISM RESULTS (MN)
> Program participants were less likely to
recidivate (8%) than non-participants (20%).
> Only 4.5% participants recidivated during study
period.
> First offense participants were 11% less likely to
recidivate.
> High BAC participants (over 0.16) were 8% more
likely to recidivate.
> Participants who refused were 29% more likely to
recidivate. 51
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OTHER OUTCOME RESULTS (MN)
> Within the participant group, there are predictive
factors for success over the long term.
> Those who avoid failures during the program
(failed start-up and rolling-retests) are more likely
to avoid recidivating after the program.
> The record of breath tests logged into an ignition
interlock was effective in predicting future DWI
recidivism risk.
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OTHER OUTCOME RESULTS (MN)
> A failed drug test at the time of arrest resulted in
a 127% elevated risk.
> Retention of participants within the interlock
program allowed for increased participation
rates.
> Interlock extensions in lieu of interlock removal
was identified as a viable alternative with regard
to public safety.
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TIRF ALCOHOL INTERLOCK TECHNICAL
ASSISTANCE
> TIRF has a cooperative agreement with NHTSA
to provide training and technical assistance.
> Goals:
> consistently identify eligible offenders and track
program participation;
> clarify agency roles and responsibilities;
> streamline and strength procedures/practices;
> create accountability; and,
> manage and efficiently use resources.54
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TIRF ALCOHOL INTERLOCK TECHNICAL
ASSISTANCE
> Work completed (2008 - 2017) in IL, NY, SC, VT,
NC, VA, WV, MD, DE, KY, ID, CA, CT, OK, MN,
OR, WY, MO, NM, TS, HI, CO, ND, LA, region 3,
region 7.
> Work ongoing in NV, AK, regional meetings:
> Region 4 (Alabama, Georgia, Florida).
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TIRF ALCOHOL INTERLOCK TECHNICAL
ASSISTANCE: COMMON STRENGTHS
> Prohibit semiconductor sensors; some also mail
in devices.
> Utilize certification and approval process for
devices and vendors (IL, VA, SC).
> Emphasis on education for lead practitioners and
for public (IL, NY, WV).
> Note interlock restriction on driver license.
> Service in rural areas (SC, WV, VA).
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TIRF ALCOHOL INTERLOCK TECHNICAL
ASSISTANCE: COMMON STRENGTHS
> Standardized reporting which may/not be
automated (IL, NY, SC).
> Indigent funding available and rely on multiple
criteria for determination (NY, SC, VA).
> Inclusion of screening/assessment and treatment
for long-term risk reduction (SC, VA, WC, NC).
> Use of graduated sanctions for offender
accountability (SC, MN, VA, WV, NY).
> Efforts to improve communication among
agencies, including vendors (SC, VA, WV).57
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TIRF ALCOHOL INTERLOCK TECHNICAL
ASSISTANCE: COMMON CHALLENGES
> Lack program funding.
> Low participation rates:
> long hard suspension period;
> ability of offenders to opt out of program;
> poor communication and tracking of offenders;
> many requirements for program eligibility.
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TIRF ALCOHOL INTERLOCK TECHNICAL
ASSISTANCE: COMMON CHALLENGES
> Paper-based reporting systems:
> increases workload;
> impedes tracking/monitoring of offenders;
> poor agency communication.
> Lack of technical knowledge:
> program authority unfamiliar with devices;
> inconsistent testing of devices;
> unable to keep pace with technological advances.
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TIRF ALCOHOL INTERLOCK TECHNICAL
ASSISTANCE: COMMON CHALLENGES
> Removal of non-compliant offenders:
> contained in legislation or program rules;
> lack of graduated sanctions;
> offenders at greatest risk for recidivism are not on
interlock.
> Agency authority lacks flexibility:
> legislation too proscriptive/difficult to change;
> program challenges cannot be addressed;
> affects staff morale and support for program.60
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TIRF ALCOHOL INTERLOCK TECHNICAL
ASSISTANCE: COMMON CHALLENGES
> Roles and workflow are unclear:
> agencies lack overall understanding of program;
> no clear program authority;
> responsibilities are not clearly assigned;
> lack of accountability ;
> decision-making is agency-specific.
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TIRF ALCOHOL INTERLOCK TECHNICAL
ASSISTANCE: COMMON CHALLENGES
> Limited vendor oversight:
> no resources or staff to manage;
> do not have a plan to provide oversight in relation
to many different facets of program.
> Limited training/education in related agencies:
> agencies not engaged;
> do not understand their role in interlock delivery.
> Lack jurisdictional reciprocity.
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TIRF ALCOHOL INTERLOCK TECHNICAL
ASSISTANCE: CONCLUSIONS
> Alcohol interlocks are a cost-effective strategy to
reduce impaired driving.
> Legislation an important first step.
> More research to improve programs is needed.
> Implementation requires careful planning and
coordination.
> Justice agencies play a critical role in programs.
> Many jurisdictions are taking steps to strengthen
practices and procedures. 63
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ACKNOWLEDGEMENTS
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