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:7

DRIVING uNDER THE INFLUENCE OF LIQUOR:

tViASSACHUSETTS ARRAIGN/VIENTS BY COURT (I 981-1982)

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ACL~U~IiTliON~ ,,

Prepared by:

Marjorie E. Brown Director of Research

January 21, 1983

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Introduction

Drunk driving has received considerable media attention in Massachusetts during the last year, and with this increased attention, the public has felt a heightened concern for drunk driving as a significant criminal justice problem.

With this in mind, the Massachusetts legislature enacted a substantial change in the drunk driving statutes on September 19 1982. The objective of the new law (Chapter: 373 of the Acts of 1982) was to increase the certainty of punishment for persons found to be driving under the influence of liquor. A

subsidiary objective was to enact strict penalties which would serve to deter motorists from drinking and driving.

Because the new statute mandates more severe criminal penalties (particularly for second offenders), the Research & Statistical Bureau of the Office of the Commissioner of Probation has compiled court-by-court data on drunk driver arraignments, to determine if the new law has had any impact on the frequency with which the system apprehends and prosecutes persons suspected of driving while intoxicated. Of particular concern is the frequency of drunk driver arraignments in September, 1983 as compared to the months prior to enactment of the new statute.

i

Method

The Office of the Commissioner of Probation receives monthly summaries of various key indicators of probation act iv i ty from all the 101 probation offices across the Commonwealth. One of thekey indicators reported monthly by each of the district courts is the total number of arraignments for driving under the influence of liquor. Data for this report was gathered from these "Monthly Reports of Probation Activit ies", as submitted to the Research & Statistical Bureau, Office of the Commissioner of Probation.

Analysis

In order to assess the impact of Chapter 373 on the volume of drunk driving arraignments, the statewide annual volume of arraignments for driving under the influence of liquor were compared from 1976 to 1982. As the data in Table I indicates, drunk driver arraignments have nearly doubled -- from 17,419 in 1 976 to 33,290 in 1982. The year-to-year rate of increase has fluctuated. The 16.3% increase from 1981 to 1982 was among the three large annual increases over the seven years analyzed; the shifts between 1979-1980 (+17.2%) and 1977- 1978 (+16.4%) were also substantial. The 1979-198Oshift may be due in part to an earlier change in the law which raised the legal drinking age in Massachusetts from 18 to 20 in April, 1979.

While the 1982 arraignment data suggest active enforcement of the law, it may also be that legislative changesare preceded by considerable media/public attention on the subject of drunk driving. Thus, increased awareness of drunk driving as a priority criminal justice problem may impact on allocation of public safety resources to apprehend drunk drivers. As public attention wanes, these resources Ray be allocated elsewhere.

- I - '

In addition to lookingat the shifts in drunk driver arraignments from a longitudinal perspective, Research staff also analyzed arraignments in 1981 and 1982 for individual courts (see table 2). In 19829 Worcester Distr ict Court reported the highest number of drunk driver arraignments (1459)~ six other courts reported 1,000 or more driving under the influence of liquor cases in 1982: Springfield (1255), Quincy (1190), Lawrence (1181)9 Lowell (1126), Barnstable (1048) and Chelsea (1042). These seven courts represented nearly 25% of all drunk driving arraignments statewide in 1982.

As the data in Table 2 indicates, while the statewide volume of drunk driver arraignments increased 16.3%, this pattern was not uniform across all the Massachusetts district courts. Some courts (such as Amesbury, Brighton, Brookline, Charlestown, Chelsea, Clinton, Dorchester, East Boston, Marlboro, Natick~ Uxbridge, Westboro and Worcester) reported increases of 40% or more. A few courts (such as Chicopee, New Bedford, Salem, Winchendon) reported substantial declines in drunk driver arraignments.:.:>:.::

. . . . : .

Several factors may account for these differences from court to court. Allocation of police resources is perhaps the most direct reason for increases in drunk driver arraignments. If more police officers are looking for dr.unk drivers, the probability is high that there will be more arrests.

Secondly, in at least one instance (Charlestown), shifts in the police jurisdiction lihe for MetrOpolitan District Commission police from Boston Municipal Court to Charlestown Court produced a substantial increase in the volume of drunk driver arraignments for Charlestown District Court.

THird, even with a stable number of police officers in a given community, the public's growing intolerance for drunk drivers may be focusing more law enforcement apprehension efforts in that direction. The publicity from several heinous traff ic accidents where innocent victims were killed by drunk drivers has reinforced the need to recognize drunk driving as a serious criminal justice problem.

While the data on annual court-by-court shifts have some limited value in assessing the impact of the new drunk driver legislation, closer scrutiny on a month-to-month, court-by-court basis addresses the immediate ramifications of the law. One might have expected that the monthly frequency of drunk driver arraignments to increase dramatically in September, 1982. Looking at the detailed statistical data in Table 3, the statewide volume of driving under the influence of liquor cases did not increase precipitously in September. In fact, in 1982~ the month of September accounted for 8.3% of the annual volume -exactly as predicted by a normal probability distribution.

Analyzing the month-to-month shifts in drunk driver arraignments in the individual distr ict courts, the data indicates that for the most part, drunk driving is not a seasonal problem. Only in a few courts (such as Barnstable, Edgartown, Orleans) are there patterns of seasonal shifts in drunk driver arraignments. These shifts seem largely to be a product of summer movement of the population toward resort areas. Drunk driving traditionally receives extensive media attention prior to the New Year's~ Memorial Day, Independence Day, Labor Day, Thanksgiving and Christmas holidays. However, of interest is the stable volume of drunk driving throughout the year. People who drink to excess and then drive do so year round, not lust around holidays. In both 1981 and 1982 the month of March had the highest number of drunk driver arraignments statewide when compared to the other mor~ths of the year.

-2-

Looking closely at the volume of drunk driver arraignments in September9 1982, most the courts reported l itt le or no increased volume during that month. Only a few courts (such as Ayer~ Dudley, Framingham, Hingham, Holyoke, Northampton, Orange, Worcester) reported more drunk driver arraignments in September~ 1982 than in prior months of the year. Looking back to the month- to-month arraignment volume in the previous year, Ayer and Northampton reported increases in September, 1981 -- somewhat negating the significance of the increased frequency in September, 1982.

Perhaps more significant than the volume of drunk driver arraignments in the one month of September, 1982 is the general trend toward more drunk driver cases in all months when 1982 was compared to 1981. Statewide (see Table 3), every month of 1982 had more "driving under the influence" cases than did the same month in 1981. Many individual courts followed this same pattern.

Summary of Findings

The data indicates that arraignments for drunk driving increased 16.3% from 1981 to 1982. Some courts reported increases of 40% or more when 1982 was compared to 1981~ a few courts reported a decline in drunk driver arraignments during that period.

When the monthly statewide totals in 1982 were compared to month-by- month totals in 1981~ every,month had a higher volume in 1982. September, 1982 did not reflect a sharp increase in drunk driver arraignments, nor was that month the highest in 1982. In both 1981 and 1982, the volume of drunk driver arraignments was highest in the month of March.

This Massachsuetts data indicates that the enactment of more stringent criminal penalties (Chapter 373 of the Acts of 1982) does not appear to be solely related to more arraignments for drunk driving. However9 the on-going media attention to alcohol-related traff ic accidents and coverage of legislative proposals may have produced a higher number of drunk driving arraignments during the entire year of 1982. It may be that heightened awareness of the ~roblem may have been as significant as the actual legislative change itself.

-3-

TABLE i:

COMMONWEALTH OF MASSACHUSETTS

DRIVING UNDER THE INFLUENCE OF LIQUOR

STATESIDE VOLUME OF A_RRAIGNMENTS (1976-1982~

Statewide Total of Percent Change YEAR DUlL Arraignments from Prior Year

1976 17,419

1977 20,275 + 16.4%

1978 20,912 + ~.1%

1979 23,080 + 10.4%

1980 27,040 + 17.2%

1981 28,625 + 5.9%

1982 33,290 + 16.3%

J

--4--

TABLE

COMMONWEALTH OF MASSACHUSETTS

2: DRIVING ~DER THE INFLUENCE OF LIQUOR

COURT-BY-COURT VOLUME OF ARFAIGNMENTS (1981-1982) J

COURT NAME DUIL DUIL Percent DUIL DUIL 1981 1982 Change COURT NAME 1981 1982

Adams 85 Amesbury 256 Attleboro 621

Ayer 493 Barnstable 924 Boston 262 Brighton 116 Brockton 781 Brookline 122 Cambridge 444 Charlestown 18 Chelsea 675 Chicopee 246 Clinton 288 Concord 753 Dedham 563 Dorchester 197 Dudley 421 E. Boston 70 Edgartown 73 Fall River 489 Fitchburg 232 Framingham 816

Gardner 275 Gloucester 229 Gr. Barrington 74 Greenfield 274

Haverhill 338 Hingham 734 Holyoke 238 Ipswich 70 Lawrence 972 Lee i00 Leominster 238

Lowell 968 Lynn 563 Malden 535 Marlboro 165 Milford 297

Nantucket 56

73 - 14.1% Natick iii 379 + 48.0% New Bedford 477 734 + 18.2% Newburyport 415

498, + 1.0% Newton 258

1048 + 13.4% North Adams 180 229 - 12.6% Northampton 697 210 + 81.0% Orange ii0 908 + 16.3% Orleans 380

245 +100.8% Palmer 498 601 + 35.4% Peabody 458 221 +1127.8% Pittsfield 266

1042 + 54.4% Plymouth 546 174 - 29.3% Quincy 1190 409 + 42.0% Roxbury 202 795 + 5.0% Salem 776

758 + 29.3% Somerville 353 300 + 52.3% S. Boston 108 523 + 24.2% Spencer 377

iii + 58.6% Springfield 1144 131"- + 79.5% Stoughton 414

542 + 10.8% Taunton 607 272 + 17.2% Uxbridge 177 948 + 16.2% Waltham 339 253 - 8.0% Ware 43

281 + 22.7% Wareham 456

64 - 13.5% Westboro 308 253 - 7.7% Westfield 286 471 + 39.3% W. Roxbury 255

991 + 35.0% Winchendon 60 240 + 0.8% Woburn 609 71 + 1.4% Worcester 1009

1181 + 21.5% Wrentham 445

135 + 35.0% 286 + 20.2%

1126 + 16.3% STATEWIDE TOTAL 28,625 33,290

644 + 14.4%

589 + 10.1% 348 +110.0% 411 + 38.4%

54 - 3.6%

Percent Change

161 + 45.0% 382 - 19.9%

364 - 12.3% 307 + 19.0% 160 - ii. 1%

806 + 15.6% Iii + 0.9% 444 + 16.8%

438 - 12.0%

508 + i0.0% 326 + 22.6%

561 + 2.7%

1190 0% 263 + 30.2%

636 - 18.0% 383 + 8.5%

138 + 27.8% 383 + 1.6%

1255 + 9.7%

332 - 19.8% 800 + 31.8% 268 + 51.4% 374 + 10.3%

49 + 14.0%

594 + 30.3% 435 + 41.2%

276 - 3.5%

298 + 16.9% 38 - 36.7%

622 + 2.1% 1459 + 44.6%

410 - 7.9%

+ 16.3%

-5-

TABLE 3: i

., DRIV,ING UNDER TIIE INFLUENCE OF LIQUOR -- ARRAIGNMENTS BY MONTII BY COURT

COIJI{T NAIqF,

AD :,-H ~

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1982 90 &.b ~~ ~.7

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, DRIgI, NG UNDER ];lie INFLUENCE OF LIQUOR - - ARRAIGNMENTS BY MONTII BY COURT

YEAR 1981 "1.~82

1982

1_98L 1982

~I9 8 II 1982

-t. 9_a.! ].982

1.981 ]_982

Jan # %

/// %$

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COURT NAME

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I

, , DRIVI.NG UNDER TIlE INFLUENCE OF LIQUOR -- ARRAIGNMENTS BY MONTII BY COURT

YEAR 1981 i9-982-

1981 1982

.1982

,Jan Feb ' Mar # % # % tt %

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"/:" # :<; s,'7

Apr # - %

f ~ f , 3

May. # %

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Jun # %:

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Jul # %

J / 6ff

Aug # %

: o IO,%

S e p l # • %

Oct # %

Nov # %

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3 ,/.:

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Dec # %

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TOTAL #

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