The Road Ahead

This document was prepared using information and statistics from "The Road Ahead" document prepared for of the Strategies to Reduce Impaired Driving Conference held in Vancouver, BC, October 12-14 2000.

History

As automobiles became reliable, affordable transportation for many Canadians in the early part of the last century, it became apparent that motorized vehicles and the consumption of alcohol were a dangerous, potentially fatal combination. Legislation providing for penalties for those charged with the offence of "driving while intoxicated" was first established in 1921, although it must be noted that at the time to be intoxicated was to be falling down drunk. It wasn't until the 1950s that impaired driving was added to the Criminal Code of Canada. In 1969, the breath sampling procedure was established and "driving with a Blood Alcohol Concentration (BAC) in excess of 80 mg per cent" replaced the vague "driving while intoxicated" charge. Modifications in 1999 included increasing the minimum penalties and extending the time frame for obtaining a breath sample. The maximum penalty for impaired driving causing death was increased to life imprisonment in 2000.

The public, governments, the police, the courts and the medical community are among the stakeholders. Local, provincial and national groups promoting awareness are involved, as is the alcoholic beverage industry. Impaired driving affects everyone!

First Time Offenders

A driver who has not previously been convicted of impaired driving under the Criminal Code is considered a "first time offender." This heterogenous group includes young, middle-aged and senior drivers. The offender might be a social drinker who has made a judgement error, or a heavy drinker, who has previously evaded being caught. Identifying potential treatment and education programs can be difficult because there are so many variables. Of drinking drivers involved in collisions in 1997, 60 to 75 per cent did not have a previous impaired driving conviction.

The purpose of sanctions for these first time offenders is to prevent them from becoming repeat offenders. Many jurisdictions require those convicted of a first offence to undergo compulsory assessment or treatment at their own expense. Vehicle and plate impoundment programs are effective deterrents. Another proposal involves providing highly specialized training in apprehension of impaired drivers for police officers. Experts on the issue would work closely with the police to help ensure that impaired drivers are dealt with expediently.

New and Young Drivers

Young drivers are those drivers who have reached the age whereby they may obtain a driving license and have successfully done so. Most new drivers are young. For example, in Saskatchewan, almost 80 per cent of new drivers are under 20 years of age.

Not only are young drivers inexperienced drivers, but they are often impressionable and inexperienced drinkers. They are less likely than new adult drivers to be aware of the effects of alcohol on their bodies and driving abilities. Due to this immaturity and inexperience, young drivers are responsible for a disproportionate number of road crashes. Over the past three decades, the road death and injury rates in the 16 to 19 age group have declined significantly; however, this progress stalled in the 1990s. The leading cause of death among youth aged 15 to 19 is still road crashes.

While young drivers are not as inclined to drive with a BAC in excess of the legal limit, the number of fatally injured teen drivers who had a BAC in excess of 80 mg per cent increased from 21 per cent to 25 per cent between 1990 and 1998. In 1998, 25 per cent of the fatally injured teenaged drivers who were tested for alcohol had a BAC of 80 mg per cent or higher. In nearly 66 per cent of multiple vehicles crashes, the fatally injured teen was impaired and not the other driver.

Effective measures have been taken to prevent young drivers from taking the wheel after drinking. By limiting exposure to high risk driving situations, graduated licensing lets young drivers gain valuable experience in optimum conditions. Driver training and education, alcohol and drug education, and hard hitting public service announcements are well-established and successful programs. Police implement "target enforcement" by setting up roadside checks in locations where they know young people consume alcohol.

Social Drinkers

Social drinkers consume alcohol in a group environment as an enjoyable social experience. Social drinking is likely to accompany other activities such as a sporting event or a dinner party. Some social drinkers do not recognize the effect of alcohol consumption on their driving abilities. They do not believe that by driving home, they pose a serious threat to themselves or others. They are not aware that drinking alcohol increases their crash risk considerably.

Although serious drinkers cause the preponderance of collisions of fatal collision, a large number of BAC positive drivers have levels under 80 mg per cent.

Ninety per cent of respondents in a recent survey supported BAC testing of all drivers involved in all collisions. Canadians also believed that treatment and counselling should be provided to those convicted of impaired driving.

While the incidence of social drinking has decreased, many Canadians consume alcohol socially. Those hosting social events must consider the issue of transportation when planning the event.

Hard Core Drinking Drivers

Individuals who repeatedly drive after drinking large amounts of alcohol are known as "hard core drinking drivers." Their drinking behaviour ranges from binge drinking to alcoholism. This group comprises a significant portion of the population who drive while impaired. Within this group exists a smaller group who have little regard for themselves or others. These individuals are especially hard to reach. Another cause for concern is the binge drinking habits of some high school, college and university students. This 16 to 24 year old group is growing rapidly and is of particular concern.

Hard core drinking drivers are responsible for a disproportionate number of crashes. Drivers with a BAC over 80 mg per cent were involved in as many as 32 per cent of all vehicle crashes with fatalities. Some ¾ of the driver fatal collisions involved individuals with BAC exceeding 150 mg per cent.

Drinking drivers in rural areas are more likely to be involved in a fatal crash. Most rural areas cannot provide public transit as an alternative to driving. Rural drivers believe that with less traffic there is less risk, and that police services are limited so they won't be caught anyway.

The hard core drinking driver presents a complex and resistant safety challenge which calls for a combination of tactics. Rehabilitation and treatment are recognized as part of the solution and participation in these programs is vital. Some jurisdictions require those convicted of impaired driving to complete assessment, education or treatment prior to license reinstatement. In 1999, the Criminal Code of Canada was amended to create provisions that permit the courts to require treatment as a probation condition where available. Other new measures and proposals include:

• Apply a tiered BAC sentencing system where the sanctions for drivers with higher BAC are more severe.
• Use cost effective alternatives to incarceration such as home confinement and electronic monitoring.
• Empower police to seize and impound vehicles of those driving while under suspension or prohibition.
• Install ignition interlock breath testing devices on vehicles of repeat offenders as well as first time offenders with high BACs.

These approaches have been tested and have proven more effective than prison in reducing recidivism. Some have been successfully implemented in various provinces.

Emerging Issues

Other Drugs...

Illicit and prescription drug use constitutes another significant aspect of the impaired driving problem. A recent Quebec survey found that drug use was more than seven per cent more prevalent that alcohol use. As Canada's population ages, the use of prescription and over-the-counter medications will increase. The Canadian Society of Forensic Study found that drugs other than alcohol were a contributing factor in 10 to 20 per cent of vehicle crashes in 1990. This raises cause for concern regarding drug use and impaired driving. More research and more education are required.

Off-road Vehicles

The penalties for impaired driving also apply to those driving off-road and recreational vehicles such as all-terrain vehicles, snowmobiles and boats. Although the scope of the problem is not well known, some recent information does suggest a serious problem. In 1998, 60 per cent of off-road vehicle drivers killed in crashes had been drinking. Seventy-one per cent of fatally injured snowmobilers had been drinking and 55 per cent of boat operators killed in 1997 were impaired.

There are education program designed for the recreational vehicle user. For example, the Canada Safety Council provides training for riders of snowmobiles and all-terrain vehicles. These programs focus on the "don't drink and ride" message while helping riders improve their skills. It is very hard to enforce the law for off-road vehicles. Nevertheless, effective prevention and detection programs must be put in place to stop the alarming increase in off-road fatalities.

Pedestrians and Cyclists

There appears to be little public discussion or awareness of impaired pedestrians and cyclists, yet 43 per cent of fatally injured pedestrians and 21 per cent of fatally injured cyclists were impaired, according to a study sponsored by Transport Canada. More effort needs to be directed at this problem as few programs currently exist.

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