SEPTEMBER | 2020

Traffic Safety TrendsState Legislative Action 2019

TRANSPORTATION

NATIONAL CONFERENCE OF STATE LEGISLATURES

Introduction . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 1

Adult Occupant Protection . . . . . . . . . . . . . . . . . . . . . . . . . 2 StateLegislation . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 4

Child Passenger Safety . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 4 StateLegislation . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 5

Alcohol and Drug-Impaired Driving . . . . . . . . . . . . . . . . . 6 StateLegislation . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 10 Ignition Interlock Installation Requirements . . . . . 10 Ignition Interlock Compliance Laws . . . . . . . . . . . . 11 Ignition Interlock Indigent Programs . . . . . . . . . . . 13 Restricted Driving Privileges . . . . . . . . . . . . . . . . . . 13 Sealing and Expungement of Records . . . . . . . . . . 13 Implied Consent and Testing Laws . . . . . . . . . . . . . 14 Penalties . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 14 Reporting and Data Collection . . . . . . . . . . . . . . . . 15 24/7 Sobriety Monitoring Programs and Treatment Programs . . . . . . . . . . . . . . . . . . . . . . . . . 16 Miscellaneous Impaired Driving Bills . . . . . . . . . . . 17

Distracted Driving . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 18 StateLegislation . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 20 Hand-Held Bans . . . . . . . . . . . . . . . . . . . . . . . . . . . . 20 Texting While Driving . . . . . . . . . . . . . . . . . . . . . . . . 21 Miscellaneous Distracted Driving Bills . . . . . . . . . . 22

Teen Drivers . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 22 StateLegislation . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 23 Driver’s Education . . . . . . . . . . . . . . . . . . . . . . . . . . . 23 Minors’ Driver’s License Applications . . . . . . . . . . 23 Driver’s License Examinations . . . . . . . . . . . . . . . . . 23 Graduated Driver’s Licenses . . . . . . . . . . . . . . . . . . 24

Older Drivers . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 25 StateLegislation . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 25

Driver’s Licensing . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 26 StateLegislation . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 26 Commercial Driver Licenses . . . . . . . . . . . . . . . . . . . 26 Driver Licenses and Instruction Permits . . . . . . . . . 27 Digital Driver’s Licenses . . . . . . . . . . . . . . . . . . . . . . 27 Medical Designation on Driver’s Licenses and Validity of Medical Certificates . . . . . . . . . . . . 28 Driver’s License Suspension, Revocation and Restoration . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 28

Speeding and Speed Limits . . . . . . . . . . . . . . . . . . . . . . . . 33 StateLegislation . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 34 Raising Speed Limits . . . . . . . . . . . . . . . . . . . . . . . . . 34 Lowering Speed Limits . . . . . . . . . . . . . . . . . . . . . . . 34 Vision Zero State Policies . . . . . . . . . . . . . . . . . . . . . 36

Aggressive Drivers . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 37 StateLegislation . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 37

Automated Enforcement . . . . . . . . . . . . . . . . . . . . . . . . . . 38 StateLegislation . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 40 Texas Bans Red-Light Cameras . . . . . . . . . . . . . . . . 41

Motorcyclist Safety . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 41 StateLegislation . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 41 Motorcyclist Licensing and Education . . . . . . . . . . 41 Motorcycle Operation . . . . . . . . . . . . . . . . . . . . . . . 42 Autocycles . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 42

School Bus Safety . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 42 StateLegislation . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 43 School Bus Drivers . . . . . . . . . . . . . . . . . . . . . . . . . . . 43 Garden State Tightens Oversight of School Bus Drivers . . . . . . . . . . . . . . . . . . . . . . . . . . . 44 Seat Belts on School Buses . . . . . . . . . . . . . . . . . . . . 45 Illegally Passing School Buses and Stop-Arm Cameras . . . . . . . . . . . . . . . . . . . . . . . . . . 46 Indiana Focuses on Safety at School Bus Stops . . 49 School Bus Equipment . . . . . . . . . . . . . . . . . . . . . . . 50

Bicyclist and Pedestrian Safety . . . . . . . . . . . . . . . . . . . . 51 StateLegislation . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 51 Bicycle Operation . . . . . . . . . . . . . . . . . . . . . . . . . . . 51 Safe Bicycle Passing . . . . . . . . . . . . . . . . . . . . . . . . . 52 Vulnerable Road Users . . . . . . . . . . . . . . . . . . . . . . . 53 Pedestrian Safety . . . . . . . . . . . . . . . . . . . . . . . . . . . 54 Electric Bicycles . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 55 Miscellaneous Bicyclist and Pedestrian Safety . . . 57

Electric Scooters . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 58

Contents

NATIONAL CONFERENCE OF STATE LEGISLATURES

NATIONAL CONFERENCE OF STATE LEGISLATURES © 2020

The National Conference of State Legislatures is the bipartisan organization dedicated to serving the lawmakers and staffs of the nation’s 50 states, its commonwealths and territories.

NCSL provides research, technical assistance and opportunities for policymakers to exchange ideas on the most pressing state issues, and is an effective and respected advocate for the interests of the states in the American federal system. Its objectives are:

• Improve the quality and effectiveness of state legislatures.

• Promote policy innovation and communication among state legislatures.

• Ensure state legislatures a strong, cohesive voice in the federal system.

The conference operates from offices in Denver, Colorado and Washington, D.C.

Traffic Safety Trends: State Legislative Action 2019

BY SAMANTHA BLOCH, DOUGLAS SHINKLE, SHELLY OREN AND JONATHON BATES

NATIONAL CONFERENCE OF STATE LEGISLATURES 1

IntroductionStatesandstatelegislatureshaveprimaryresponsibilityforestablishingtrafficsafetylawsandprogramstohelpensurethesafetyofroadwayusers.In2019,statelegislaturesintroducedover2,400trafficsafetybillsrelatedtothe15topicareascoveredinthisreport.

Topicareasexaminedinthisreportinclude:

• Adultoccupantprotection.• Childpassengersafety.• Alcohol-impaireddriving.• Drug-impaireddriving.• Distracteddriving.• Teendrivers.• Olderdrivers.• Driver’slicensing.• Speedingandspeedlimits.• Aggressivedrivers.• Automatedenforcement.• Motorcyclistsafety.• Schoolbussafety.• Bicyclistandpedestriansafety.• Electricscooters.

Thisreportfocusesonnotable,enactedlegislationfromthesetopicareas.AllbillsdiscussedinthisreportcanbefoundintheNCSL-NHTSATrafficSafetyLegislativeTrackingDatabase .

NATIONAL CONFERENCE OF STATE LEGISLATURES 2

Adult Occupant Protection AccordingtotheNationalHighwayTrafficSafetyAdministration(NHTSA),morethan36,000liveswerelostonU.S.roadsin2018duetomotorvehiclecrashes.TheCentersforDiseaseControlandPrevention’s(CDC)LeadingCausesofDeathReportsshowthatin2018,motorvehiclecrashesweretheleadingcauseofdeathamongthoseages5to24andthesecond-leadingcauseamong25-to44-year-olds.

NHTSA’sdatashowsthat,amongpassengervehicleoccupantskilledin2018whereitwasknownwhethertheywerewearingaseatbelt,47%—9,778people—wereunrestrained.NHTSAalsoestimatesthat87%ofpassengervehicleoccupantswhosurvivedfatalcrashesin2018wererestrained,while13%wereunrestrained.In2017,seatbeltsinpassengervehiclessavedanestimated14,955lives—ofoccupantsage5andolder—andpreventedthousandsofinjuries.Anadditional2,549livescouldhavebeensavedin2017ifallunrestrainedpassengersinvolvedinfatalcrasheshadworntheirseatbelts,accordingtoNHTSA.

Wearingaseatbeltreducestheriskoffatalinjurybynearlyhalfforoccupantsofpassengercars,andbymorethanhalfforoccupantsoflighttrucksandvans.

Seatbeltuseratesvarywidelybetweenstates.In2019,theyrangedfrom70.7%inNewHampshireto97.1%inHawaii.Whilenationallytherateofadultsusingseatbeltsinthefrontseatduringthedayincreasedfrom81.7%to90.7%from2005to2019,makingprogresshasbeenachallengeforlawmakers,enforcementofficialsandtrafficsafetyadvocatesinthepastfewyears.Thelastsignificantjumpindaytimebeltuseoccurredbetween2015and2016,andthenationaladultseatbeltuseratehasbeenfluctuatingsince.AAA’s2018TrafficSafetyCultureIndexshowsthatwhiledriverscompletely(74%)orsomewhat(17.9%)disapprovedofdrivingwithoutwearingaseatbelt,nearly17%reportedhavingdrivenwithoutbucklingupinthelastmonth.Over8%ofdriverssomewhatorcompletelyapprovedofdrivingwithoutwearingaseatbelt,thehighestproportionbeingdriversages19to24.

NHTSA’slatestdatashowsthat39%ofbeltedrear-seatoccupantsdiedinfatalcrashes,incontrastto50%ofunbeltedrear-seatoccupantsin2017—restraintusefortheremaining10%ofoccupantskilledisunknown.However,progresshasbeenparticularlylackingregardingrear-seatbeltuse.Rear-seatbeltuseamongoccupants8yearsandolderincreasedfrom69.7%in2009to76.1%in2018,themostrecentyearforwhichdataisavailable.Thenumberofoccupantswhobuckleupinthebackseat,however,continuestobesignificantlylowerthanfront-seatbeltusers.Additionally,astudysuggeststhatrear-seatbeltuseishigherinprivatevehiclesthanintaxis,andresultsaremixedregardingride-hailingservicessuchasUberandLyft.

Anareathathasseenimprovementisseatbeltuseamongruralmotorvehicleoccupants.Whilethereusedtobeadifferenceinseatbeltusebetweenurbanandruralareas,2019datashowsthaturbanvehicleoccupants(90.8%)andruraloccupants(90.4%)arewearingseatbeltsatthesamerate.In2015,only86.8%ofoccupantsinruralareaswerebucklingup,comparedto89.4%inurbanareas.

NATIONAL CONFERENCE OF STATE LEGISLATURES iv

Primary and Secondary Laws Primaryseatbeltlawsallowpolicetostopandticketamotoristifthedriverorpassengersarenotbuckledup.Secondarybeltlawsallowpolicetoissueacitationonlyifthedriverisfirststoppedforanotherinfraction.

NATIONAL CONFERENCE OF STATE LEGISLATURES 3

Source: NCSL, 2019

Adult Seat Belt Laws

AS

NH

ID

MT

WY

MA

VT

NV

ND

SD

NE MO

OH

CO

AZ

VA

PA

OK

IA

AR TN

MI

FL

GA

VI

CT

WV

NY

KS

AL

NC

NJ

MDHI NM

TX

WI

LA

IL

KY

MS

IN

GU MP PR

SC

DC

AK

WA

OR

CA UT

MN

DE

RI

ME

Primary enforcement for all seatsPrimary enforcement for front seat/secondary enforcement for rear set

Secondary enforcement for all seats

Primary enforcement for front seat only

Secondary enforcement for front seat only

No law

Eachstatedeterminesitsownseatbeltlaws.Researchaffirmsthatseatbeltlawssignificantlyincreaseseatbeltuseandthatprimaryenforcementlawsaremoreeffectiveininducingpeopletobuckleupthansecondaryenforcementlaws.In2019,92%offront-seatoccupantsinstateswithprimaryenforcementlawsbuckledupincontrastto86.2%offront-seatoccupantsinstateswithsecondaryenforcementornolaws.Theeffectofseatbeltlawsonrear-seatoccupantsisalsonoteworthy.In2018,81%ofoccupantsinbackseatsusedbeltsinstateswithseatbeltlawsforallseatingpositions,whileonly68.7%ofoccupantsinrearseatsusedbeltsinstateswithfront-seat-onlybeltlaws.

Stateadultseatbeltlawscanbegroupedintosixcategories:• Primaryenforcementlawsforalloccupants:19states—Alaska,California,Delaware,Hawaii,Illinois,

Indiana,Kentucky,Louisiana,Maine,Minnesota,Mississippi,NewMexico,Oregon,RhodeIsland,SouthCarolina,Texas,Utah,WashingtonandWisconsin,plustheDistrictofColumbia,Guam,theNorthernMarianaIslandsandPuertoRico.

• Primaryfront-seatbeltlawandsecondaryrear-seatbeltlaw:Fivestates—Alabama,Kansas,Maryland,NewJerseyandNorthCarolina.

• Secondarylawsforalloccupants:Sixstates—Idaho,Massachusetts,Montana,Nevada,VermontandWyoming.

• Primaryfront-seat-onlybeltlaws:10states—Arkansas,Connecticut,Florida,Georgia,Iowa,Michigan,NewYork,Oklahoma,TennesseeandWestVirginia—andtheVirginIslands.

• Secondaryfront-seat-onlybeltlaws:Ninestates—Arizona,Colorado,Missouri,Nebraska,NorthDakota,Ohio,Pennsylvania,SouthDakotaandVirginia.

• NewHampshireandAmericanSamoaaretheonlystateandterritorywithoutaseatbeltlawforadults.

NATIONAL CONFERENCE OF STATE LEGISLATURES 4

STATE LEGISLATION

Duringthe2019legislativesession,29statesconsideredbillsrelatedtoseatbelts.Fourstatesenactedlegislationconcerningseatbeltrequirements.

Alabama(SB254)amendeditsseatbeltstatutein2019torequirethateachoccupantofapassengercarwearaseatbelt,includingpreviouslyexcludedback-seatoccupants.Alabama’slawalreadyrequiredfront-seatoccupantstowearaseatbeltasaprimaryobligation.Now,failuretowearaseatbeltintherearseatisasecondaryoffense.

Louisiana(HB181)amendeditsseatbeltlawstoincludetrucksthatweigh26,000poundsorless.Previouslythelawsincludedonlytruckswithagrossweightof10,000poundsorless.Underthenewlaws,thedriverandallpassengersofsuchtrucksmustbeproperlybuckledup.Driversarenotallowedtotransportmorepersonsthantherearesafetybeltsavailableinthevehicle.Maine(SB389),onthecontrary,enactedlegislationtoexemptpassengers18andolderfromwearingaseatbeltifthenumberofpassengersexceedsthevehicle’sseatingcapacityandalltheseatbeltsareinuse.

Washington(HB1901/SB5827)exempteddriversorpassengersofcommercialmotorvehiclesfromwearingaseatbeltiftheyhaveawrittencertificationfromalicensedphysicianstatingtheyareunabletowearaseatbeltforphysicalormedicalreasons.

Child Passenger SafetyOfthe23,551passengervehicleoccupantfatalitiesin2017,794werechildren(definedasage14andyounger),accordingtothelatestNHTSAdata.Basedonknownrestrainuse,267(37%)wereunrestrained.Thismeansthatonaverage,threechildrenwerekilledeverydayintrafficcrashesintheUnitedStates.

Themosteffectivemethodtoprotectchildrenincarsistoproperlysecuretheminanappropriatecarseatorboosterseatinthebackseat.Childrenshouldremaininthebackseatthroughatleastage12.NHTSAestimatesthatcarseatsandboosterseatsreducefatalinjuryby71%inpassengercarsforinfantsunderage1andby54%fortoddlersages1to4.Approximately325livesweresavedin2017byrestraintuseamongchildrenyoungerthan5.NHTSAestimatesthatthelivesof11,274childrenunderage5weresavedbychildrestraints(childsafetyseatsoradultseatbelts)inpassengervehiclesfrom1975to2016.

NATIONAL CONFERENCE OF STATE LEGISLATURES 5

Forthebestpossibleprotection,NHTSAandtheAmericanAcademyofPediatrics(AAP)recommendthatchildrenremaininrear-facingcarseatsaslongaspossible—untiltheyreachthetopheightorweightlimitrecommendedbytheseat’smanufacturer.AAP’spreviousrecommendation,releasedin2011,wasthatchildrenshouldbeinrear-facingcarseatsuntilatleastage2.AsofDecember2019,atotalof15states—California,Connecticut,Illinois,Louisiana,Maine,Nebraska,NewJersey,NewYork,Pennsylvania,RhodeIsland,SouthCarolina,Oklahoma,Oregon,VirginiaandWashington—andtheDistrictofColumbiahavestrengthenedtheirchildsafetylawstorequirerear-facingcarseatsuntilage2.

Oncechildrenoutgrowtherear-facingcarseat,theyshouldtravelinaforward-facingcarseatwithaharnessandtetheruntiltheyreachtheheightandweightlimitsfortheseseats(manyforward-facingcarseatscanaccommodatechildrenupto65pounds).Childrenages4to7shoulduseeitheraforward-facingcarseatoraboosterseat,dependingonthechild’sheightandweight.Inthe2017NationalSurveyoftheUseofBoosterSeats(NSUBS),NHTSAfoundthatproperrestraintuseforthisagegroupwas68.5%,anincreasefrom62.4%in2015.However,theremaining31.4%werenotbeingproperlyrestrained,20.8%wererestrainedbyseatbeltsonly,and10.6%wereunrestrained.

NHTSAnotesthattheprimaryreasonsrestrainedchildrenareinjuredinmotorvehiclecrashesareprematurelyturningachild’sseattofaceforward,movingachildtooearlyfromonerestrainttypetothenext,inappropriateuseofchildrestraintsandseatbelts,andplacingchildreninthefrontseat.

Accordingtothe2017survey,prematuretransitiontoinappropriaterestrainttypescontinuedin2017.However,between2015and2017,thepercentageofchildrenplacedinanappropriateformofchildrestraintincreasedsignificantlyinallcategories.While7.6%ofchildrenages1to3wereprematurelytransitionedtoboosterseatsin2017,thatnumberdecreasedfrom13.6%in2015.Atthesametime,rear-facingcarseatuseincreasedsignificantlyamongthatagecohort,from9.4%to13.7%.Additionally,boosterseatuseamongchildren4to5yearsolddecreasedsignificantlyfrom2015to2017.Forward-facingcarseatuseamongthosechildrenincreasedover15percentagepointsduringthesameperiod.

STATE LEGISLATION

EverystateandtheDistrictofColumbiahaveenactedchildrestraintlawsthatrequirechildrenofcertainagesandsizestorideinappropriate,federallyapprovedchildrestraints.Althougheachstatehasalaw,somelawsonlycoverchildrenuptoacertainsizeorage,whileothersallowuseofadultsafetybeltstorestrainchildren.

Child Motor Vehicle Traffic Fatalities, 2008-2017

Source: NHTSA

2008 2009 2010 2011 2012 2013 2014 2015 2016 2017

550

500

450

400

350

300

250

200

150

100

50

0

Num

ber o

f Fat

aliti

es

340

267251208

81

397

319303

246

85

<1 Year Old 1-3 Years Old 4-7 Years Old13-14 Years Old8-12 Years Old

NATIONAL CONFERENCE OF STATE LEGISLATURES 6

Twenty-sixstatesconsideredchildpassengerprotectionlegislationin2019andfourstates—Louisiana,Maine,VirginiaandWashington—enactedlaws.

Louisiana(SB76)andWashington(HB1012)nowrequirechildrentoberestrainedinarear-facingcarseatuntiltheyreach2yearsofageortheweightorheightlimitsetbythemanufacturer.Maine(SP389)hasthesamerequirementforchildrenyoungerthan2whodonotexceedtheweightlimitinaconvertiblecarseat,orchildren2yearsandolderbutweighinglessthan55pounds.Previously,Louisiana’slawonlyrequiredchildrenyoungerthan1toberestrainedinarear-facingcarseat.MaineandWashington’slawsdidnotpreviouslyhaveprovisionsregardingrear-facingcarseats.

Louisiana(SB76),Maine(SP389)andWashington(HB1012)nowrequirechildrenyoungerthan4whohavenotreachedtheweightorheightlimitssetbythemanufacturertoberestrainedinaforward-facingcarseatwithaninternalharness.Previously,Louisianarequiredaforward-facingcarseatforchildren1through3andhadnointernalharnessrequirement.MaineandWashingtondidnotpreviouslyhavelawsregardingforward-facingcarseats.

Louisiana(SB76)nowrequireschildrenolderthan4whohaveoutgrowntheforward-facingweightorheightrequirementstoberestrainedinabelt-positioningboosterseat.Achildwhoisatleast9yearsoldorhasoutgrowntheheightorweightlimitsofaboosterseatmustberestrainedwithanadultseatbelt.Childrenyoungerthan13mustbetransportedintherearseatwhensuchaseatisavailable.Previously,boosterseatswererequiredinLouisianaforchildrenages4and5orwhoseweightwasbetween40and60pounds.Childrenages6andolderorwhoweighedover60poundswereallowedtouseadultseatbeltsandcouldsitinthefrontofavehicle.

Maine’s(SP389)newlawrequiresabelt-positioningboosterseatforchildrenyoungerthan8whoweighlessthan80poundsandmeasurelessthan57inchesinheight.Washington(HB1012)nowrequireschildrenunder4feet,9inchestalltoberestrainedinaboosterseatunlesstheseatingpositionhasonlyalapbeltavailable.Oncetheheightlimitisreached,childrendonothavetouseaboosterseatbutmustbeproperlysecuredwiththevehicle’sseatbelt.However,thenewlawpointstotheAAPrecommendationsandstatesthatchildrenover4feet,9inchestallmaycontinuetoberestrainedinaboosterseatuntilthelapandshoulderbeltsfitproperly,whichtypicallyoccurswhenchildrenarebetween8and12yearsold.

Additionally,Virginia(HB1662/SB1677)enactedlegislationexemptingemergencymedicalservices,firedepartmentandlawenforcementvehiclesfromchildrestraintlawsrequirements.

Alcohol and Drug-Impaired Driving In2018,10,511peoplewerekilledinalcohol-impairedtrafficcrashes,a3.6%decreasefrom2017,accordingtoNHTSA’s2018Alcohol-ImpairedDrivingTrafficSafetyFacts.Asin2017,thesealcohol-impaireddrivingfatalitiescomprised29%ofalltrafficfatalities.Thetotalnumberincludes6,364drivers(61%)whohadabloodalcoholconcentration(BAC)of0.08orhigher,whiletheremainderwere2,969motorvehicleoccupants(28%)and1,178nonoccupants(11%)—suchaspedestriansandbicyclists.

NHTSAdatashowsthatinthelast10years,alcohol-impaireddrivingfatalitieshavedeclinedby2%.Additionally,thenationalrateofalcohol-impaireddrivingfatalitiesinmotorvehiclecrasheswentfrom0.36per100millionvehiclemilestraveled(VMT)in2009to0.33in2018,an8%decline.However,nosignificantdownwardtrendhasemergedinthelastdecadeandfurthersustainedprogresshasbeenchallengingtoachieve.

Accountingforroughlyone-thirdofalltrafficfatalities,impaireddrivingremainsacomplexandpersistenttrafficsafetyandpublichealthissueforstates.Anaverageofonealcohol-impaireddrivingfatalityoccurredevery50minutesin2018.Alcohol-impaireddeathsincluded1,038children14andyounger,representing22%oftrafficfatalitiesamongchildren.Theannualcostofalcohol-impairedcrashes,includingalcohol-impaireddrivers,bicyclistsandpedestrians,isestimatedatmorethan$44billion.

NATIONAL CONFERENCE OF STATE LEGISLATURES 7

Tobetterunderstandpublicopinionsandbehaviorsregardingtrafficsafety,AAApublishesanannualTrafficSafetyCultureIndex.The2018indexrevealsthat95.1%ofdriversperceivedrivingafterdrinkingasverydangerousorextremelydangerous.Amongsurveyedparticipants,10.9%reporteddrivingafterbelievingtheyhaddrunkenoughtobeoverthelegallimit.Asinpreviousyears,respondentsages25to39madeupthehighestproportion—16.7%—ofthosewhodroveafterthinkingtheiralcohollevelmaybeabovethelegallimit.AccordingtoNHTSAdata,individualsinthe21-to24-year-oldagegrouphadthehighestpercentage(27%)ofdriverswithBACsof.08orhigherinfatalcrashes,closelyfollowedbythe25to34agegroup(25%).

AccordingtoAAA’sreport,about67%ofparticipantsthinkitissomewhatorverylikelythatadriverwhohasaBACoverthelegallimitwillbecaughtbylawenforcement.Driversages19to24havethehighestproportionofperceivedrisk,andthisproportiondecreasesasageincreases.AreportbytheFBIstatesthatin2016,over1milliondriverswerearrestedforDUIofalcoholornarcotics.TheCDCnotesthatthisis,onaverage,around1%oftheself-reportedepisodesofalcohol-impaireddrivingamongU.Sadultseachyear.

Thefederalgovernment,statesandtrafficsafetyorganizationsarecontinuallyexamininginterventionsandnewtechnologiestocombatalcohol-impaireddriving.

TheFederalMotorCarrierSafetyAdministration(FMCSA)releaseditsDrugandAlcoholClearinghouseonJan.6,2020.Thisdatabase,mandatedbyCongressin2012,willgiveemployers,statedriver’slicensingagenciesandstatelawenforcementofficersreal-timeinformationaboutcommercialdriver’slicense(CDL)andlearner’spermitholders’drugandalcoholviolations.AccordingtoNHTSAdata,whilethepercentageofalcohol-impaireddriversinfatalcrasheswasthelowestfordriversoflargetrucks(3%)in2018,thiswastheonlycategorytoexperienceanincrease(1%)infatalcrashescomparedtodatafrom2009.Additionally,therehasbeenincreasedscrutinyofimpaireddrivingamongschoolbusdriverswhorequireCDLs(seepage43forfurtherinformation).

Percentage of Alcohol-Impaired Driving Fatalities Among Total Fatalities, by State 2018

<26%26-30%>30%

28%NM

24% MD

40%TX

22%OK

22%KS

27%ND

43%MT

30%WY

30%CO

23%UT

25%ID

26%NV

30%WA

30%OR

19% KY

30%ME

33% NY

28%PA

27%MI

33% NH33% MA

34% RI39% CT

29% VA

28%OH26%

IN30%IL

29% NC23% TN

28%SC

26%AL25%

MS

26%AR

27%IA

28%MN

34%WI

22% NJ

25%GA

29% DC

36%AK

30%HI

26%FL

25% DE

28%AZ

30%CA

29%NE

35%SD

23%VT

19%WV26%

MO

28%LA

40%PR

Source: FARS 2018 ARF

Source: NHTSA

NATIONAL CONFERENCE OF STATE LEGISLATURES 8

UnderFMCSAregulations,employersarenowrequiredtoquerytheclearinghousebeforepermittingcurrentandprospectiveemployeestooperateacommercialmotorvehicleonpublicroads.Thequerymustberepeatedatleastannually.EmployerswillalsohavetoreportdrugandalcoholprogramviolationsthatoccurredonorafterJan.6,2020.AccordingtoarecentFMCSArule,statescurrentlyhavetheoptiontovoluntarilyrequestclearinghouseinformation,butwillberequiredtoquerythedatabasebeforeissuingCDLsstartingonJan.6,2023.FMCSAreportedthatbetweenJan.6andFeb.21,2020,theclearinghousehadidentifiednearly8,000positivetestsforsubstanceabuseviolationsbycommercialdrivers.

In2019,Marylandbecamethesecondstate,afterVirginiain2018,topilottheDriverAlcoholDetectionSystemforSafety(DADSS)Program.Thisprogram,apublic-privatepartnershipresearchprojectbetweentheAutomotiveCoalitionforTrafficSafetyandNHTSA,aimstodevelopanon-invasive,seamlesstechnologythatwouldusesmallprogrammablesensorsbuiltinsidevehiclepanelstomeasuretheBACinadriver’sbreath.DriverswhoseBACisabovethesetlimitwillbeunabletomovethevehicle.TheInsuranceInstituteforHighwaySafety(IIHS)notesthatthetechnologyhasthepotentialtosaveapproximately7,000livesifitcanlimitdriverBACstonomorethan0.08—thelegallimitinall50statesexceptUtah,whereitis0.05.Introducedfederallegislation(SB 2604)aimstoprovideadditionalfundingforresearchandroadtestingofsuchpassivedetectionsystemsand(HR4354)wouldrequireallnewmotorvehiclestobeequippedwiththistechnology.

Drivingundertheinfluenceofdrugs(DUID)appearstobeafactorinasteadilyincreasingnumberofimpaired-drivingcrashes.NHTSA’s2013-2014NationalRoadsideSurveyrevealsadecreasingtrendinalcoholusebydriversbetween1973and2013-2014.Onthecontrary,thepercentageofweekendnighttimedriverswhotestedpositiveforthepresenceofmarijuanarosefrom8.6%in2007to12.6%in2014.Whilein2013-2014,8.3%ofweekendnighttimedriverstestedpositiveforalcohol(aBACofmorethan.005)and1.5%hadaBACof.08orhigher,22.5%hadapositivedrugoralfluidand/ordrugbloodtest.Thestudypointsoutthatthepresenceofdrugsdoesnotnecessarilyimplyimpairment.However,accordingtoNHTSA,druguseamongfatallyinjureddriverswhoweretestedrosefrom25%in2007to42%in2016,andmarijuanapresencedoubledinthistimeframe.

AAA’s2018TrafficSafetyCultureIndexrevealsthatmostrespondentsconsiderdrivingshortlyafterusingmarijuana(70%)anddrivingafterusingpotentiallyimpairingprescriptiondrugs(87.3%)tobeveryorextremelydangerous.Over81%ofsurveyedparticipantssupportlawsmakingitillegaltodrivewitha

NATIONAL CONFERENCE OF STATE LEGISLATURES 9

certainamountofmarijuanainthedriver’ssystem.However,aCDCreportnotesthatin2018,12millionU.Sresidentsreporteddrivingundertheinfluenceofmarijuana,and2.3millionreporteddrivingundertheinfluenceofillicitdrugsotherthanmarijuanaduringthepast12months.Aswithalcohol,drivingwithdrugsinone’ssystem,whichdoesnotnecessarilyconstituteimpairment,wasmoreprevalentamongmalesages21to25.Thoseages16to20hadthesecond-highestprevalence.

Increasedprevalenceofmarijuana-impaireddrivinghasbeenobservedinstatesthatlegalizedthedrug.Currently,11 states—Alaska,California,Colorado,Illinois,Maine,Massachusetts,Michigan,Nevada,Oregon,VermontandWashington—andtheDistrictofColumbiahavelegalizedmarijuanaforadultrecreationaluse.NewresearchfromtheAAAFoundationforTrafficSafetyconcludedthatthenumberofdriversinWashingtonwhotestpositiveformarijuanaafterafatalcrashhasdoubled—fromabout9%toabout18%—sincethestatelegalizeditin2012.However,theauthorspointedoutthatthestudyfoundonlyacorrelationbetweenlegalizationandanincreasednumberofdriversinvolvedinfatalcrasheswhotestedpositive,notacausativelink.InColorado,whererecreationalmarijuanawasalsolegalizedin2012,thenumberoffatalitiesincrashesinwhichdriverstestedpositiveforTHC—thecomponentthatgivescannabisitspsychologicaleffectsandcausesimpairment—rosefrom18in2013to77in2016.AstudyoftheHighwayLossDataInstitute(HLDI)founda6%increaseincollisionclaimsinsomestatesaftertheylegalizedrecreationalmarijuana,comparedwithneighboringstateswhererecreationalusewasillegal.

Tocombatdrug-impaireddriving,somestateshavechosentoenact“perse”laws,whichmakeitillegaltodrivewithspecificamountsofcertaindrugs.Whilealcohol-impairedperselawsarebasedonevidencethatalldriversareimpairedataBACof.08,currently,thereisnoscientificbasistoreliablyequatespecificdrugconcentrationlevelswithlevelsofimpairmentoreffectsondriverperformance.Theeffectivenessofperselawsfordrugsinreducingdrug-relatedfatalitiesisunclear.Accordingtoastudy,lawenforcementofficersandprosecutorsgenerallyagreedthatperselawsdidnotfacilitateenforcementbutdidhaveapositiveeffectonprosecutions.Sixstates—Illinois,Montana,Nevada,Ohio,PennsylvaniaandWashington—havespecificperselimitsforTHC(rangingbetween1nanogramand5nanograms).Colorado’sreasonableinferencelawassumesdriversareundertheinfluencewhenTHCisidentifiedintheirbloodinquantitiesof5nanogramspermilliliterorhigher.

Otherstatesdecidedtoenactzero-tolerancelaws,whichmakeitillegaltodrivewithanymeasurableamountofspecifieddrugsinthebody.Elevenstates—Arizona,Delaware,Georgia,Indiana,Iowa,Michigan,Oklahoma,RhodeIsland,SouthDakota,UtahandWisconsin—havezero-tolerancelawsforcertaindrugs,includingTHC.Formoreinformation,seeNCSL’sresourceonmarijuana-impaireddrivinglaws .

Aspreviouslymentioned,trafficsafetypractitionershaveexperiencedchallengesachievingsustainedprogressinreducingimpaireddriving.Researchsuggeststhatpersistenceinthehighrateofimpaired-drivingfatalitiescanbelinkedtothefailuretoidentifyandappropriatelytreathigh-riskimpaireddrivers.TheGovernorsHighwaySafetyAssociation’s(GHSA)2019report,“High-RiskImpairedDrivers:CombatingaCriticalThreat,”defineshigh-riskimpaireddriversasdriversmeetingoneormoreofthreecriteria:

• TheydrivewithaBACof.15orhigher.• Theyhaveconsumedacombinationofdrugsordrugsandalcohol(polysubstanceusers).• Theyarerepeatoffenders(i.e.,havemorethanoneDUIarrest).

NHTSA’s2018factsheetshowsthatamongallthe2018alcohol-impaireddrivingfatalities,67%(7,051)wereincrashesinvolvingatleastonedriverwithaBACof.15orhigher.NHTSAdataalsorevealsthatasignificantpercentageofdrivers(37%)testedpositiveforpolydrugusein2017,slightlylowerthanthepercentageofdriverswhotestedpositiveforcannabisonly(38%).AccordingtoGHSA’sreport,repeatoffenderscauseapproximatelyathirdofimpaireddrivingdeathseachyear.Thereportnotesthatmanyhigh-riskoffendersnotonlyhaveasubstanceusedisorder,butalsoamentalhealthproblem,andcallsforaholisticapproachthatfocusesontheindividualandtheneedtotreattheunderlyingproblemthatpromptsthebehavior.Italsoprovidesexamplesofpromisingapproaches,including,amongothers,DUItreatmentcourts,data-sharingandelectronic-warrantsystems.

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Unlikeforalcohol,nostandardizeddrug-testingtechnologyexists.Testingmethodsincludeoralfluid,blood,urineandhair.However,formarijuana,thesetestsdonotdeterminewhetherthedrugwasingestedrecently,androadsidetestshavetobeconductedbydrugrecognitionexpertstoproveimpairment.Currently,23stateshavestatutesauthorizingsomeformoforalfluidtestinginDUIorDUIDcases.TheyareAlabama,Arizona,Arkansas,Colorado,Delaware,Georgia,Illinois,Indiana,Kansas,Louisiana,Michigan,Mississippi,Missouri,Nevada,NewYork,NorthCarolina,NorthDakota,Ohio,Oklahoma,RhodeIsland,SouthDakota,UtahandWyoming.Themajorityofthesestatesdonothaveactiveoralfluidtestingprogramsestablished.Alabamainitiallyconductedapilotprogramandlatertransitionedtoapermanentoralfluidtoxicologyprogramusingoralfluidtestingdevicesinbothscreeningandevidentiarycapacity.Michigan(PublicAct242and243of2016)gaveauthoritytostatepolicetodevelopanoralfluidpilotprogram.Theinitialpilotwasconductedinfivecountiesanduseddrugrecognitionexpertstoadministertheoralfluidtest.Unlikepreviousprograms(likethethree-yearpilotprograminColoradothatwasstartedinMarchof2015),thisprogramwasnotvoluntaryasdriverswerenotgiventheoptionofoptingoutfromprovidingasample.Refusaltosubmittoanoralfluidtestwasconsideredacivilinfraction.TheprogramwasextendedforoneyearuntilSept.30,2020,andisnowconductedstatewide.

Somecompaniesaredevelopingmarijuanabreathalyzersthatareexpectedtohitthemarketin2020.However,manyquestionspersist.Whilestudiesshowthatmarijuanaimpairscognitivefunction,psychomotorskillsandlanetracking,thereisnoestablishedlimitthatcanbereliablyequatedwithacertainlevelofimpairment.Additionally,dataondrug-impaireddrivingisincompleteandinconsistent.NHTSApointsoutthatdrugtestingandreportingacrossstatesandjurisdictionsisnotuniform,butthatcollectingthisdataiscriticaltounderstandingthescopeoftheproblemandcalculatingbettercrashriskestimates.

In2018,NHTSAlauncheditsDrug-ImpairedDrivingInitiative.Underthisinitiative,anexpertworkinggroupcontributedtoaDrug-ImpairedDrivingCriminalJusticeEvaluationTooltohelpstate,local,territorialandtribalgovernmentsself-assessgapsandstrengthentheirdrug-impaireddrivingprogramsandtracktheirprogressovertime.Thetool’scomprehensivescopeaddressesvariousaspectsinvolvedinpreventingdrug-impaireddrivingandincludesasectionregardinglegislation.Sinceitwaslaunched,theLoveland,Colo.,PoliceDepartmentandtheMarylandStateHighwayAdministrationhavepilotedthetool.Additionally,inFebruary2020,NHTSApublisheditintheFederalRegisterandrequestedcommentsfromotherpractitionersaboutimprovementsandrefinementsthatcouldaddvaluetothetool.Themostrecentversionofthetoolwillcontinuetobeavailableatwww.nhtsa.gov/DUIDtool .

STATE LEGISLATION

Lawmakersinall50statesconsideredover500billsrelatedtoimpaireddrivingin2019.Approximately140billswereenactedby49states.Lawsaddressedignitioninterlockinstallationrequirementsandcompliance,ignitioninterlockindigentprograms,restricteddrivingprivileges,sealingandexpungementofrecords,impliedconsentandtestinglaws,penalties,reportinganddatacollection,amongothertopics.

Ignition Interlock Installation RequirementsIgnitioninterlockdevices(IIDs)areinstalledinmotorvehiclestopreventthecarfrombeingoperatedifasetlevelofalcohol,usuallyaBACof.02or.025,isdetectedonthedriver’sbreath.Mostdevicesrequirerandomretestingwhilethecarisrunningtoensurethatthedriverisnotdrinkingoncethecarisstarted.ManycourtsrequiretheuseofIIDsfordriversconvictedofDUI.Duringsentencing,anoffenderwhosedriver’slicensehasbeensuspendedorrevokedcanbegrantedlimiteddrivingprivilegesifanIIDisinstalledinthevehicle(s)theyuse.

All50stateshavepassedlegislationthatallowsorrequirestheuseofignitioninterlocksforcertaindrunkendrivingoffenders.Twenty-ninestateshavemandatoryignitioninterlockprovisionsforalloffenses,includingforafirstconviction.TheyincludeAlabama,Alaska,Arizona,Arkansas,Connecticut,Delaware,Hawaii,Idaho,Illinois,Iowa,Kansas,Louisiana,Maine,Maryland,Mississippi,Nebraska,Nevada,NewHampshire,NewJersey,NewMexico,NewYork,Oregon,Tennessee,Texas,Utah,Vermont,Virginia,WashingtonandWestVirginia,plustheDistrictofColumbia.Colorado,KentuckyandMaine’slawsstronglyencouragefirst-timeoffenderstoinstallanIID.Pennsylvania’slawisuniquebecauseitrequiresinterlocksforfirst-timeoffenderswithaBACof.10orgreater.

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NHTSAdatashowsthatIIDsreducerecidivismamongfirst-timeandrepeatoffenders,includinghigh-riskoffenders.However,forrepeatandhigh-riskoffenders,IIDswerefoundtobeeffectiveinreducingrecidivismonlywhiletheywereinstalled.OncetheIIDswereremoved,offender’srecidivismratesincreased.ButaCDC studyofaFloridapolicymandatingalcoholusedisordertreatmentforDUIoffendersusinginterlocksfoundotherwise.Amongoffenderswhoaccumulatedthreeinterlockviolations—definedastwooccasionswithinfourhoursinwhichthedevicepreventedthedriverfromstartingthevehicle—therewasa32%decreaseinrecidivismafterthedevicewasremoved.

AAA’s2018TrafficSafetyCultureIndexshowsthatover81%ofdriverssupportedlawsmandatingtheinstallationofIIDsforallDUIoffenders,includingfirst-timeoffenders.Recently,itwaspointedoutbytheNew York TimesthatIIDs,andmorespecificallyrollingretestingrequirementswhilethevehicleismoving,canpotentiallydistractdriversandcausecrashes.

Atleasteightstates—Kentucky,Louisiana,Nevada,NewHampshire,NewJersey,Oklahoma,TexasandUtah—enactedlegislationregardingignitioninterlockinstallationrequirementsin2019.KentuckyandNewJerseypassedlegislationtorequireorstronglyencourageallDUIoffenders,includingfirst-timeoffenders,toinstallIIDs.

Kentucky(SB85)amendeditsIIDlawstostronglyencourageallDUIoffenderstoinstallanIIDdevice;previously,thelawincludedonlyoffenderscommittingasecondorsubsequentviolation.Thelawmandatesthatthelicenseplatesoftheoffender’svehiclebesuspendedunlessheorsheinstallssuchadevice.Similarly,NewJersey(SB824)amendeditslawtorequireallDUIoffenderstoinstallanIID.Previously,onlyrecidivistsandoffenderswithahighBACwererequiredtodoso.Thenewlaweliminatedthemandatorythree-monthlicensesuspensionforsomeoffenders.OffenderswithaBACbetween.08and.1willhavetheirdrivingprivilegesuspendeduntiltheyinstallanIID.FordriverswithaBACover.1,thelicensesuspensionperiodandhowlongtheymustuseIIDsvariesdependingontheirBAClevelandwhethertheyrefusedtosubmittoatest.

Louisiana(HB278)amendeditsimpaireddrivinglawstoallowindividualsconvictedofaDUIandwhosedrivingprivilegesaresuspendedorrestrictedtoinstallanIIDandrequestanignitioninterlocklicense.Theseindividualscanreceivecredittowardsuspensiontimeiftheydon’tviolatemorethanoneoftheIIDcompliancerequirements,includingtamperingwiththedeviceorfailingtopassatest,foronemonth.Oklahoma(SB712)decreasedsuspensionperiodsforfirst-andsecond-timeimpairedoffendersandincreasedtheperiodforthird-timeoffenders.However,thenewlawestablishedtheImpairedDriverAccountabilityProgram,underwhichoffendersmayrequesttheirdriver’slicensesuspensionperiodbemodifiediftheyinstallanIIDforaslongastheinitialsuspensionwouldhavelasted.Offendersmustrequesttoenrollintheprogramwithin30daysoftheirinitialnoticeoflicenserevocationandpaya$200administrativefee.

NewHampshirepreviouslyrequiredanIIDforoneyearfollowingtherestorationoffulldrivingprivilegesbutamendeditslaws(SB212)toalsorequirethedeviceforthedurationofthelimiteddrivingprivilegeperiod.

InNevada(SB408),courtscannolongerexcuseaconvictedindividualfrominstallinganIIDifitwouldcauseaneconomichardshiporthedriverneedsamotorvehicletotraveltoandfromwork,ortoobtainbasicneeds.Texas(HB3582)modifieditsprovisionstorequirethosechargedwithaDUIandgrantedcommunityserviceunderdeferredadjudication—aformofprobationthatpostponesdeterminationofguilt—toinstallanIID.Ajudgemaywaivethisrequirementifheorshedeterminesthat“basedonacontrolledsubstanceandalcoholevaluationofthedefendant…anignitioninterlockisnotnecessaryforthesafetyofthecommunity.”Defendantswithcommercialdriver’slicenses,aBACofover0.15,orwhootherwisequalifyforenhancedpenalties,arenoteligibletoreceivesuchawaiver.

Utah(SB131)amendeditsIIDlawtoexemptindividualswhoseoffensedidnotinvolvealcoholbutotherimpairingsubstances.IndividualsalreadyrequiredtoinstallanIIDandwhoseconvictiondoesnotinvolvealcoholmaypetitiontheDriver’sLicenseDivisiontoremovetherequirement.

Ignition Interlock Compliance Laws Severalstateshaveignitioninterlocklawsthatincludecompliance-basedremovalprovisions.Threestates—Kentucky,NewJerseyandOklahoma—amendedtheirlawswhileOregonaddedcertainrequirementsregardingIIDtechnicians.

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NATIONAL CONFERENCE OF STATE LEGISLATURES iv

Currently,21statesrequireIIDstobeequippedwithacamera.TheyareArizona,Colorado,Florida,Hawaii,Illinois,Idaho,Kentucky,Maryland,Michigan,Minnesota,Missouri,Nebraska,NewHampshire,NewYork,Oregon,SouthDakota,Tennessee,Texas,Vermont,VirginiaandWashington.Thecamerahelpsensurethepersonusingtheinterlockisthedriver.MissouriandVermonthaveGPSandcamerarequirementsforsomeoffenders.AlthoughColoradohasnorequirementinstatute,theDivisionofMotorVehicle’s(DMV)contractswithignitioninterlockvendorsrequirealldevicestohavecameras.

Idaho(HB78)amendeditsignitioninterlocklawin2019torequireallinterlockstobecamera-equipped.Kentucky(SB85)andMaryland(SB245/HB55)alteredtheirstatutorydefinitionofignitioninterlockdevicetorequirethatitbeequippedwithacameracapableofrecordingtheimagesofthepersonprovidingthebreathsamples.Kentucky’snewlawalsomandatesthatthecamerarecordthedateandtimewhenthesampleisprovided.Maryland’senactedlegislationspecifiesthatthecamerashouldnotberecordingimagesexceptduringthetestingperiodsorwhenthedeviceisbeingtamperedwith.

Kentucky(SB85)addedaviolationforaltering,concealingorhidingfromthedevice’scameratheidentityofthepersonprovidingabreathsample.FailuretotakerandomtestsalsoconstitutesaviolationofKentucky’sIIDlawsunlessadigitalimageconfirmsthatnodriverwasoccupyingthevehicleatthetime.

BeforeanIIDcanberemoved,NewJersey(SB824)nowrequiresnomorethanonefailuretotakeorpassatestduringthefinal30daysoftheinstallationperiodandthatallothermaintenanceandmonitoringobligationsaremet.Ifanyoftherequirementsisviolated,thecourtcanextendtheIIDperiodforupto90days.Oklahoma’snewIIDstatute(SB712)requiresthemanufacturertoreportanyviolation.Thedevicecanberemovedonlyiftherewerenoviolationsduringtheprior180days.

Oregon(HB3005)amendeditsIIDlawsregardingIIDtechnicians.Itprohibitsanyoneconvictedofamisdemeanorinthelasttwoyears,aDUIinthelastfiveyearsorafelonyinthelast10yearsfrominstalling,servicing,maintaining,calibratingorremovingIIDs.

Source: NCSL, 2019

Camera Use in Ignition Interlock Devices

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Ignition Interlock Indigent ProgramsIndigentIIDprogramsreducethecostofthedevicesforparticipatingoffenderswhoqualifyforfinancialassistance.AsIIDprogramshaveexpanded,statesarefacedwithoppositionoverthefinancialburdentheyplaceonlow-incomeoffenders.IIDinstallationsareassociatedwithadministrativecostsaswellasthecostofpurchasingthedevice.Toalleviatethiscostbarrierandallowlow-incomeoffenderstocontinueusingtheirvehicles,stateshaveestablishedindigentprogramstoaidinthewidespreadimplementationofIIDprograms.Twostates—KentuckyandTexas—amendedtheirignitioninterlockindigentprogramsin2019.

Kentucky(SB85)reenacteditsIIDindigentprogramprovision.Individualscannowbenefitfromdiscountedfeesofupto75%,dependingonhowtheirincomeisassessedinrelationtothefederalpovertyguidelines.

Texas’(HB3582)newdeferredadjudicationcommunityprovisionsforDUIdefendantsallowthejudgetowaivetheIIDinstallationfeeandreducethemonthlydevicemonitoringfeeby50%whenindigencyisproven.However,feesassessedforfailedtestsmaynotbediscounted.

Restricted Driving Privileges Lawsinsomestatesprovideforrestricteddriver’slicensesforDUIoffendersasanadditionoralternativetoanIID,orasasubstitutetohavingthelicensesuspended.Peoplewitharestrictedlicensearelimitedonwhereandwhentheycandrive.Threestates—Oregon,NebraskaandVirginia—modifiedtheirlawsregardingrestricteddrivingprivilegesofDUIoffenders.

Virginia(HB1664)amendeditslawstoallowaDUIoffenderconvictedinanotherstatewhosedrivingprivilegeshavebeenrevokedtosubmitapetitionforrestricteddrivingprivileges.Thecourtmayacceptthepetitionifitdetermines“therearecompellingcircumstanceswarrantinganexception.”

Nebraska(LB269)expandedthepermissibledestinationsforrestricted“schoolpermits”toincludenotonlyschoolbuildingsbutotherpropertyusedbytheschoolforcourses,extracurricularorschool-relatedactivities,andotherschoolevents.Oregon(HB3214)alsomodifiedtheallowableusesofamotorvehicleforhardshipdriverpermitholderstoincludetheprovisionof“necessaryservices”tothepermitholderoramemberofhisfamily.ThenewlawinstructstheDepartmentofTransportationtodeterminebyrulewhatconstitutes“necessaryservices”andallowsittogobeyondbasicnecessities.

Sealing and Expungement of RecordsStatesallowindividualstohaverecordsofcriminalcasessealed,meaningthatsucharecordwouldbeaccessibleonlywithacourtorder.In2019,twostates—NorthDakotaandVermont—expandedthenumberofcrimesthatcanbesealedandincludedsomeDUIoffensesundercertainconditions.Itisalsopossibleforpeopletohavecertainoffensesremovedfromtheircriminalrecordentirely.Thisprocessisknownasexpungement.Fourstates—Delaware,Mississippi,UtahandWestVirginia—reformedtheirexpungementregimebutexplicitlyexcludedallorcertainDUIoffenses.

NorthDakota(HB1334)amendeditslawsrelatedtosealingcriminalrecordstoincludecertainDUIoffensesiftherequestorhasnotcommittedasubsequentviolationoftheimpaireddrivinglawsoranyothercriminaloffensewithinsevenyearsofthefirstviolation.Thisnewsectiondoesnotapplytooffenderswhoholdacommercialdriver’slicense.Vermont(HB460)alsoincludedcertainDUIconvictionsamongcrimesthatareeligibleforapetitiontoseal.Offenderscansubmitapetitionifatleast10yearshaveelapsedsincetheysuccessfullycompletedthetermsofthesentenceandhavenotbeenconvictedofanycrimeduringthatperiod.ThenewlawexcludesDUIviolationswhileoperatingaschoolbusorcommercialvehicle,violationsthatresultedindeathorseriousinjury,andcurrentcommercialvehicledriver’slicenseholders.

Delaware(SB37),Utah(HB431)andWestVirginia(SB152andSB2002)passedlegislationtoaddoffensesthatareeligibleforexpungementbutexplicitlyexcludedallDUIoffenses.Mississippi(HB1352)excludedonlythird,fourthorsubsequentDUIoffenses.

NATIONAL CONFERENCE OF STATE LEGISLATURES 14

Implied Consent and Testing LawsAlldriver’slicenseapplicantsagreetocomplywithrequestsbylawenforcementofficerstotakebreathorbloodsamplestodetermineimpairmentwhentheysigntheirdriver’slicenseapplicationforms.Abreathtestcanbeadministeredroadsideoratanylocation;bloodandurinetestingcanonlybeperformedatamedicalordetentionfacility.Theselaws,calledimpliedconsentlaws,arebasedonthepremisethatdrivingisaprivilegeandnotaright.Everystatehassomesortofimpliedconsentlaw,butthepenaltiesvaryforoffenderswhorefusetosubmittoatest.

Georgia(HB471)amendeditsimpliedconsentlawtorequireanarrestingofficertoreadaspecificimpliedconsentnoticeincludedinthestatutetoanindividualwhenrequestingthatheorshesubmittoatest.Thenoticepointsoutthattheprivilegetodriveconditionsanindividualtosubmittocertaintestsandrefusalwillresultinadriver’slicensesuspensionforaminimumofoneyear.

Illinois(HB1438)allowslawenforcementtouse“validatedroadsidechemicaltests”andincludessuchtestsinitsimpliedconsentlaws.ThenewlawalsostatesthattheGeneralAssemblyfindssuchteststobeeffectivemeanstodeterminewhetherapersonisundertheinfluenceofcannabisanddeclarestheresultsofvalidatedroadsidechemicaltestsadmissibleincivilandcriminalproceedings.Oklahoma(SB712)modifieditstestingstatutetoallowalawenforcementagencytodesignatewhichtestortests—breath,blood,urineorsaliva—shouldbeusedbyarrestingofficers.

Vermont’snewadministrationoftestsstatute(HB529)explicitlyprohibitsatrainedlawenforcementofficeractinginhisofficialcapacitytowithdrawblood.Italsoexpandsthelistofthosewhomaywithdrawbloodtoincludemedicaltechniciansandparamedics,andlimitsthefeesamedicalfacilityorotherbusinessmaychargeforbloodwithdrawalto$75.Kentucky(SB85)clarifiesthatthoseaskedtotakeanalcoholtesthavetherighttohavethetestperformedbyamedicalprovideroftheirchoosingwithinareasonabletimeaftertheirarrestandattheirexpense.

Arkansas(HB1411)amendeditsmandatorybloodalcoholtestingstatutetoincludenotonlycrasheswhendeathresultedormayreasonablyresult,butalsowhenthereisseriousphysicalinjury.Kentucky(S85)amendeditslawtoprovidethataBAClevelof0.04,previously0.05,constitutesapresumptionthattheindividualchargedwasnotundertheinfluenceofalcohol.

Tennessee(SB1342)broadenedthescopeofitsimpliedconsentlawtomakeitapplicabletobloodtests,previouslynotincluded,fordeterminingalcoholimpairment,drugimpairmentorboth.Thebillalsochangedthepenaltyforrefusingtotakeabloodorbreathtest.Insteadofbeingchargedwithamisdemeanor,individualsarenowsubjecttoadriver’slicensesuspensionandmayhavetoinstallanIID,dependingontheirpreviouscriminalhistory.

Threestates—Kansas,NorthDakotaandSouthDakota—amendedtheirlawstoincludetestingofsaliva,oralfluidsorotherbodilysubstances.SouthDakota(SB12)amendeditscommercialdrivingimpliedconsentlawtoincludetherefusalofbloodorotherbodilysubstancetestsasanactthatwouldleadtodisqualificationforatleastoneyear.Similarly,NorthDakota(HB1534)modifieditsimpliedconsentlawtoincludethetestingofsaliva.Kansas(HB2104)changed“saliva”’to“oralfluid”initstestingandimpliedconsentstatutes.Kansas’(HB2104)amendedbreath,saliva,bloodandurinetestingstatutesnowincludeaone-yeardriver’slicensesuspensionforindividualswhorefusetocompletesuchatest,insteadofthepreviousfineof$105.

Penalties Fivestates—Hawaii,Indiana,Maryland,TexasandVirginia—enhancedpenaltiesfordrivingundertheinfluenceofalcoholand/ordrugs.NewMexicopassedlegislationestablishinganewcrimeforDUIwithaminorinthevehicleandMarylandincreasedexistingpenaltiesforsuchinstances.AccordingtoAAA’sTrafficSafetyCultureIndex,over76%ofresponderssupportlawspreventingthetransportofaminorbyadriverwhohasconsumedanyalcohol.NewJerseyamendeditslawtoallowformorelenientpenaltiesforDUI-relatedoffenses.

NATIONAL CONFERENCE OF STATE LEGISLATURES 15

Hawaii(HB703)increasedthepenaltiesthatcanbeassessedagainstindividualsdrivingundertheinfluence.Thebillexpandedtheperiodinwhichpreviousoffenseshavetobeconsideredfromfiveto10yearsandbroadenedthedefinitionofhabitualoffender.Itnowincludesindividualswhohadalreadybeenconvictedtwoormoretimesinsteadofthreeormoretimes.Minimumfineswereraisedfrom$150to$250forfirst-timeoffendersandfrom$500to$1,000forsecond-timeoffenders.Second-timeoffendersarealsosubjecttoamaximumfineof$3,000,insteadoftheprevious$1,500maximum.Anewminimumfineof$2,000andmaximumfineof$5,000wereestablishedforhabitualoffenders.Newmandatorydriver’slicensesuspensionperiodsaretwotothreeyears(previously18monthstotwoyears)forsecond-timeoffendersandthreetofiveyears(previouslyonetofiveyears)forhabitualoffenders.

Indiana(SB186)increasedthefelonylevelfordrivingundertheinfluenceorintoxicatedandforcausingdeathorcatastrophicinjurywhiledrivingundertheinfluenceorintoxicated.Virginia(HB1941)createdaclass6felonyforDUIoffenderswhounintentionallycauseseriousbodilyinjury.Thelawalsoincreased,fromaclass6felonytoaclass4felony,thepunishmentforDUIoffenderswhounintentionallycauseseriousbodilyinjuryresultinginpermanentandsignificantphysicalimpairment.

Maryland(HB707)increasedthemaximumpenaltiesforrecidivistswhoareconvictedofDUIandDUIperseoffenses.Individualswithtwopriorconvictionsaresubjecttofiveyearsimprisonment,a$5,000fineorboth.Thosewiththreeormorepriorconvictionsorwhowerepreviouslyconvictedofcommittinghomicideorlife-threateninginjurybymotorvehiclearesubjectto10yearsimprisonment,a$10,000fineorboth.Thelawalsoincreasedthemaximumprisontermforcommittinghomicidebymotorvehiclewhileimpairedbyalcoholordrugsfromthreetofiveyearsforafirstoffense.

Texas(HB2048)establishedadditionalfinesforcertainintoxicateddrivingoffenses.Thenewlawrequiresfirstoffenderstopay$3,000.Driversconvictedofasecondorsubsequentoffensewithin36monthsarerequiredtopay$4,500.OffenderswithaBACof0.15ormorearefined$6,000.Thenewlawrequiresthecourttowaivetheseadditionalfinesfordefendantswhoarefoundtobeindigent.However,Texas(HB3582)modifieditslawstoallowjudgestograntdeferredadjudicationforcertainfirst-timeDUIoffensesthatwerepreviouslyexcluded.Offenderswhoheldacommercialdriver’slicenseorcommerciallearner’spermit,hadaBACof0.15orarechargedwithanaggravatedoffense,continuetobeineligible.

NewMexico(HB517)establishedthemisdemeanorcrimeofdrivingwhileintoxicatedwithachildyoungerthan13inthevehicle.ApersonviolatingthisstatutewillbechargedandpunishedseparatelyfromhisorherDUIoffense.Maryland(HB707)increasedprisontermsfordriversconvictedoftransportingaminorwhileimpairedbyalcohol,drugsoracombinationofbothfromsixmonthstooneyearforafirstoffense,andfromoneyeartotwoyearsforasecondoffense.

NewJersey(SB824)eliminatedenhancedpenaltiesforoffensesoccurringonornearaschoolpropertyorcrossing.

Reporting and Data CollectionReportinganddatacollectionarecriticaltounderstandingthescopeoftheimpaireddrivingproblem.However,asNHTSApointsout,reportingacrossstatesandjurisdictionsisnotuniform,especiallyregardingdrug-impaireddriving.Threestates—California,IllinoisandMaine—passedlegislationaimedatimprovingdatacollectionandreportingofDUIDoffenses.NewJerseyenactedabillrelatedtocollectionandreportingofIIDdata.

California(AB397)amendeditslawregardingreportingofDUIoffensesbythesuperiorcourtstotheDepartmentofJusticetorequirethereporttospecificallystatethataconvictionwasduetocannabiswhenitwasthesoleintoxicatingdrug.Similarly,Maine(HB469)requiredtheDepartmentofPublicSafetytomaintainseparatecategoriesinitsuniformcrimereportingforoffensesinvolvingDUIofalcohol,DUIofintoxicatingsubstancesotherthanalcoholandDUIofacombinationofboth.

Illinois(HB1438)requiredstatepolicetoannuallyproduceacomprehensivereportontheimpactofcannabisontrafficsafety.ThenewlawalsocreatedaDUICannabisTaskForcechargedwithexaminingbestpracticesinenforcingDUIofcannabislaws,includingemergingroadsidetestingtechnologies.

NATIONAL CONFERENCE OF STATE LEGISLATURES 16

NewJersey(SB824)requiredtheMotorVehicleCommissiontosemiannuallyproduceareportonoffendersrequiredtoinstallanIID.Thereportmustincludeinformationonthetotalnumberofoffenders,whethertheoffendersqualifyforreducedfees,theaveragelengthoftimeoffendershaveanIIDrequirement,andthenumberofoffenderswhoremovetheIIDbecausetheyareunabletoaffordit.

24/7 Sobriety Monitoring Programs and Treatment ProgramsDUIrecidivismisasignificantconcernforlawmakersandenforcementofficials.Toaddressthisissue,stateshavedebatedandenactedlegislationthatrequiresusingtreatmentprogramsandsobrietymonitoringprograms.Judgeshavealwayshadtheoptiontousecourt-mandatedtreatment,whichrequiresimpaireddrivingoffenderstoparticipateinevaluationandtreatmentfortheirsubstanceabuseissues.However,recentinterestincludescombiningbehavioraltreatmentwithmorepunitivesanctions.Oneoftheseprogramsiscalleda“24/7sobrietymonitoringprogram.”

24/7sobrietymonitoringprogramsemphasizesobrietyandrequirecertainDUIoffenderstosubmittoabreathorurinetestmultipletimes(usuallytwice)dailyatadesignatedsite.Manyprogramsalsoallowtheuseofbreathalyzers,transdermalalcoholmonitoringdevices(anklebracelets)anddrugmonitoringpatchestomonitoranoffender’ssobrietywhencertainfactorssuchasdistancefromorlackofaccesstoatestingsitemakeprimarytestingmethodsunreasonable.Iftheoffenderfailsordoesnotappearforatest,heorshewillreceiveswift,certainandmoderatesanctions,whichcanincludebondrevocation,paroleorprobation,andincarcerationfor24or48hours,inmostcases.24/7sobrietymonitoringprogramsdonotrequireparticipantstoentertreatment.

TheRANDCorporationpublishedapaperin2020analyzingSouthDakota’s24/7sobrietymonitoringprogram’scausaleffectontheprobabilityofrearrestorprobationrevocationforrepeatDUIoffenders—offenderswhohavebeenchargedwithasecondorthirdDUIviolation.SouthDakotawasthefirststatetoestablishastatewide24/7sobrietymonitoringprogramin2007.Theauthorsconcludedthattheprobabilityofrearrestorprobationrevocationwas49%lowerforprogramparticipantsthanfornon-participants12monthsaftertheirDUIarrest.Theauthorsalsofounda“substantivedecreaseat24and36months.”

Currently,14states—Alaska,Florida,Hawaii,Idaho,Iowa,Montana,Nebraska,Nevada,NorthDakota,SouthDakota,Utah,Washington,WisconsinandWyoming—have24/7sobrietymonitoringprogramsorpilotprogramsatthestateorcountylevel.Nevadaenactedastatewide24/7sobrietyanddrugmonitoringprogramandIowa,Montana,NorthDakotaandWyomingamendedtheir24/7sobrietymonitoringprogramsin2019.

Nevada(AB316)enactedastatewide24/7sobrietyanddrugmonitoringprogramin2019thatisopentolocalgovernments.Oncealocalgovernmentelectstoparticipate,ithastodesignatealawenforcementagencytoenforcetheprogram.ThenewlawauthorizedacourttoorderaDUIorDUIDoffenderwhoreoffendswithinsevenyearstoparticipateintheprogramforaperioddeterminedbythecourt.Participantsmustabstainfromalcoholanddrugsandsubmittominimumrequirementsthatincludetestingtwiceadayandrandomtestingtwiceaweek.Additionally,participantsaresubjecttosanctionsformissedorfailedtests.Participantswhosedriver’slicensewassuspendedorrevokedcanobtainarestrictedlicensethatallowsthemtodrivetoandfromatestinglocation,work,courtappearances,counselingandotherregularlyscheduledmedicalcare.

InIowa,courtsmayrequireDUIoffenderswhocommittedeligibleoffensestoparticipateinthestate’s24/7sobrietyanddrugmonitoringprogramasaconditionofparoleorreceivingatemporaryrestrictedlicense.Eligibleoffendersincludefirst-timeoffenderswithaBAClevelabove.15,thosewhocausedacrashorrefusedatest,andallsecondorsubsequentoffenders.Iowa’stransportationdepartmentmustrequireeligibleoffenderstoparticipateintheprogramasaconditionoftheirtemporaryrestrictedlicenseinacountythatisparticipatingintheprogram.Since2018,IowalawrequiresalloffenderstoinstallanIIDasaconditionforreceivingatemporaryrestrictedlicense.Newlyenactedlegislation(SF364)clarifiesthatparticipationinsuchaprogrammustbeforaminimumof90days,andparticipantsarenotallowedtomissorfailatestduringthefinal30daysoftheprogramtosuccessfullycompleteit.TheenactedbillalsoextendedthedeadlinefromDecember2021toDecember2023fortheDepartmentofPublicSafetytosubmitareportdetailingtheeffectivenessoftheprogramandmakingrecommendationsconcerningitscontinuedimplementationorelimination.

NATIONAL CONFERENCE OF STATE LEGISLATURES 17

Montana(SB362)revisedcertainrequirementsforits24/7sobrietyanddrugmonitoringprogram.Thenewlawoutlinesprimarytestingmethods,whichincludetwice-a-day,in-personbreathtestingatacentrallocation,aswellasothermethodsapprovedbytheDepartmentofJustice.Italsoallowsforhardshiptestingmethodswhenacourtoragencydeterminesthatcertainfactors,suchasdistancefromorlackofaccesstoatestingsite,makeprimarytestingmethodsunreasonable.Hardshiptestingmethodsincludetransdermalalcoholmonitoringdevicesandremotebreathtestdevices.Additionally,Montananowrequiresthatallcourt-orderedalcoholanddrugtestinguseadatamanagementtechnologysystemthatcanbeaccessedbyotherstatesorlocalagenciestoprovideamorecompleterecordofalcoholanddrugtestresults.

NorthDakota(HB1179)alsoamendeditslawtomandatethattheDepartmentofTransportation(DOT)issuerestrictedlicensestoallcompliantparticipantsina24/7sobrietyprogram.PreviouslyDOThaddiscretioningrantingrestrictedlicensestoprogramparticipantsandwasnotallowedtograntsuchlicensestorepeatoffenders.

Wyoming(SB7)reviseditsexisting24/7sobrietymonitoringprogram.Underthenewlaw,acourtcanorderanyDUIorDUIDoffendertoparticipateintheprogram.Previously,onlyrepeatoffendershadaccesstotheprogram.Theenactedbillexpandedtestingmethodsbyincludingremotebreathtestingandremoteelectronicalcoholmonitoringdevices.ParticipationintheprogramcanbeorderedasanalternativeorinadditiontoIIDrestrictions.Thenewlawalsocreateda24/7restricteddriver’slicenseforpeoplewhomustparticipateintheprogramasanalternativetoIIDrestrictions.Anindividualwhose24/7restrictedlicenseisrevokedforanyreasonbeforesuccessfullycompletingtheprogrammustapplyforanIIDrestrictedlicense.Penaltiesfordrivingwitharevoked24/7licenseincludeaminimumofsevendaysandamaximumofsixmonthsimprisonmentinadditiontoaminimumfineof$200andamaximumfineof$750forafirstoffense.Theminimumimprisonmentperiodis30daysforasecondandsubsequentviolation.TheDOTisdirectedtoprescriberegulationsdetailingpermissibleactionswitha24/7restricteddriver’slicenseandestablishafeechargeabletoapplicantsthatcannotexceed$125.

Additionally,Mississippi,OklahomaandVermontadoptedlegislationfocusedonalcoholanddrugrehabilitationin2019.

Mississippi(HB1352)amendeditsDUIlawstorequirearepeatoffendertoundergoanalcoholand/ordrugdependenceassessment.Uponconsideringtheresultsoftheassessment,acourtmayrefertheindividualtoarehabilitativeprogramapprovedbytheU.S.FoodandDrugAdministration(FDA).Thenewlawalsodirectsthecourtstoallowalcoholanddruginterventionprogramparticipantstousecourt-approvedmedication-assistedtreatment.Oklahoma(SB712)alsodirectsagenciesassessingindividualsforalcoholandopioiddependencetoreferthemtolicensedphysiciansiftheybelievetheoffenderwouldbenefitfromanFDA-approvedmedication-assistedtreatment.Offendersmaintaintherighttorefuseanyprescribedmedication.

Vermont(SB146)createdtheSubstanceMisusePreventionOversightandAdvisoryCouncil.Thecouncilisdirectedtoimprove“thehealthoutcomesofallVermontersthroughaconsolidatedandholisticapproachtosubstancemisuse”andtoprovideadvicetothegovernorandGeneralAssemblyforimprovingthestate’spreventionpoliciesandprogramming.

Miscellaneous Impaired Driving BillsWestVirginia(HB2183)modifieditsDUIlawstoclarifythatDUIoffensesdonotincludeoperatingavehicleexclusivelyonone’sownpropertyunlessthepersoncausesdeathorabodilyinjurytoanypersonotherthanhimself.

Alabama(SB47)amendeditsimpliedconsentlawstoincluderemotedriversofautonomousvehicles.Suchadriverisnowdeemedtohavegivenhisconsenttotakeblood,breathandurineteststodeterminehisorherBACorthepresenceofdrugs.Vermont(SB149)prohibitsanautonomousvehicleoperatorthatisconductingatestonapublichighwayfromhavingaBACof0.02ormore.

California(AB127)allowsapersontodriveundertheinfluenceofalcoholanddrugsunderthesupervisionandonthepropertyoftheDepartmentoftheCaliforniaHighwayPatrolforthepurposeofconductingresearch.

NATIONAL CONFERENCE OF STATE LEGISLATURES 18

Distracted Driving NHTSAdefinesdistracteddrivingas“anyactivitythatdivertsattentionfromdriving,”includingtalkingortextingonthephone,eatingordrinking,ormanipulatingthestereo,entertainmentornavigationsystem.NHTSApointsoutthattextingisespeciallyconcerningsinceitisacombinationofvisual,manualandcognitivedistractions.Sendingorreceivingatexttakesadriver’seyesfromtheroadforanaverageof4.6seconds,theequivalent—at55mph—ofdrivingthelengthofanentirefootballfield.Thisisparticularlyrelevantgiventhatnearlyone-thirdofAmericanadultsprefersendingtextstotalkingonthephoneandtheproportionisprobablyhigheramong18-to24-year-olds.Whiletextingisparticularlydangerous,NHTSAconcludedina2013studythathand-heldmobiledeviceuse,ingeneral,wasassociatedwithanincreasedcrashornear-crashrisk.

NHTSArecognizesthattherearesomelimitationstothecollectionandreportingofdataconcerningdriverdistraction.Challengesincludethedifficultyinidentifyingdistractionasacrashfactorandthelackofuniformityamongpolicecrashreports.Manycrashesinvolvingdistractionalsoinvolveotherfactors,includingfatigue,alcoholimpairment,orrunningaredlightorstopsign.Insuchcases,distractionisnotalwaysincludedinthecrashreport.Additionally,differencesincrashreportingformsmakeitdifficulttocollectandcomparedatanationwide.Harmonizationofreportingprotocolsandmoredataareneededtobetterunderstandtheprevalenceofdriverdistractioninvehiclecrashes.

Whileitisnecessarytointerpretdistracteddrivingstatisticswiththeselimitationsinmind,theyarehelpfulinprovidinganapproximateviewoftheproblem.In2018,2,841peoplediedindistraction-relatedcrashes,accordingtoNHTSA.Thisnumberaccountsfor7.8%oftotalfatalitiesandrepresentsa12.4%decreasecomparedwithnumbersfrom2017.NHTSA’sDistractedDrivingreportpointsoutthat599nonoccupantswerekilledindistraction-relatedcrashesin2017.Additionally,6%ofalldriversinfatalcrasheswerereportedasdistracted,withmobiledevicescausingthedistractionfor13%ofthesedrivers.Asinpreviousyears,driversyoungerthan30areoverrepresentedindistraction-relatedfatalcrashesandhavethehighestpercentagesofmobiledeviceuseasthecauseoftheirdistraction.Fifteento19-year-oldstoppedbothcategories—8%ofdriversinthisagerangewhowereinvolvedinfatalcrasheswerereportedasdistracted,andmobiledeviceswerethecauseofdistractionfor23%ofthesedrivers.AccordingtotheCDC,“42%ofhighschoolstudentswhodroveinthepast30daysreportedsendingatextoremailwhiledriving.”

NHTSAdataregardingelectronicdeviceusebydriverspaintsamixedpicture.Thepercentageofdriverstalkingontheirhand-heldmobiledevicedeclinedto3.2%in2018,comparedto6%in2008,thefirstyearforwhichNHTSAdataisavailable.However,thepercentageofdriversvisiblymanipulatinghand-helddevicesincreasedfrom1%in2008to2.1%in2018.

NATIONAL CONFERENCE OF STATE LEGISLATURES 19

NATIONAL CONFERENCE OF STATE LEGISLATURES iv

Onepossibleexplanationforthischangecouldbetheincreasedavailabilityoftechnologythatallowsforhands-freetalkingincars.However,technologicaladvancescouldalsohelpexplaintheriseindriverswhouseelectronicdevicesfornon-talkingfunctions.NewresearchfromAAAfoundthatdriverswhoregularlyuseadvanceddriverassistancesystems(ADAS),suchaslane-keepingassistanceandadaptivecruisecontrol,weremorelikelytoengageindistracteddrivingwhenusingthesesystems.DriversusingADASshowedan80%increaseinengaginginvisual-manualsecondarytasks,suchastextingordialinganumberonahand-heldphone,reachingforanobjectoradjustingclimatecontrol.Theyalsoexhibiteda50%increaseinperforminganysecondarytasks,suchasinteractingortalkingwithpassengersorpetsinthevehicle,dancingandsinging.

AAA’s2018TrafficSafetyCultureIndexprovidesinsightintoAmerican’sopinionsregardingtheuseofpersonalelectronicdeviceswhiledriving.Thestudyshowsthatapproximately96%ofdriversviewreadingortypingonahand-heldmobiledevicewhiledrivingtobeveryorextremelydangerous.Nearly80%ofdriversconsidertalkingonahand-heldmobiledeviceasveryorextremelydangerous.Amajorityofdriverssupportlawsagainstdistracteddriving—nearly75%supporthand-heldbansandalmost88%supporttexting-bans.Evenso,52.1%reportedtalkingonahand-heldmobiledevice,41.3%reportedreadingonahand-helddevice,and32.1%reportedtypingatextoremailwhiledrivingatleastonceinthepast30days.Lessthanhalfofalldriversbelievetheyareatriskofbeingcaughtbypolicefortalking(47.3%),reading(43.3%)ortyping(46.3%)onahand-helddevicewhiledriving.

Definition of Hand-Held and Texting BansStatesprimarilyusehand-heldandtextingbanstocombatdistracteddriving.Hand-heldbansarelawsthatallowtheuseofmobiledeviceswhiledrivingonlyinhands-freemode—usuallythroughvoicecommunicationorbyactivatingwithasingletaporswipe.Agrowingnumberofstatesalsoincludeaprohibitiontoaccess,vieworreadnon-navigationrelatedcontent.Textingbansprohibitdriversfromtypingorsendingtextmessageswhiledrivingbutallowtalkingonahand-heldmobiledevice.Manyofthesebansprovideforvariousexemptions,includinguseforemergenciesandbylawenforcementandfirstresponders.Severalstateshavelawsbanningallmobiledeviceusefornovicedriversordriversunderacertainage—generally18,butsomestatessetthemaximumageat19or21.

Expertshavenotreachedaconsensusontheefficacyofdistracteddrivinglawssuchashand-heldandtextingbans.WhileNHTSAconcludedina2013studythathand-heldmobiledeviceusewasassociatedwithanincreasedcrashornear-crashrisk,ithasnotadoptedanofficialpositionontheeffectivenessofdistracteddrivinglaws.

Studiesseemtoagreethathand-heldbanshavebeensomewhateffectiveinreducinghand-heldphoneuse,buttheevidencedoesnotpointtoareductionincrashes.

California’sOfficeofTrafficSafetyreleasedareportin2018thatexaminedthestate’shand-heldphoneusesince2012.Californiaenactedahand-heldbanin2006thatbecameoperativeonJuly1,2008.Thebanwastoughenedin2016byallowinguseofanelectronicdeviceonlyifitismountedonthewindshield,dashboardorcenterconsoleandisactivatedbyasingleswaportap.ThestudyfoundthatCalifornia’shand-heldusageratefluctuatedbetween2012and2018,reachingahighof7.6%in2016beforedroppingto3.6%in2017,theyearthetoughenedlawbecameeffective,andslightlyincreasingagainto4.5%in2018.

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Source: NCSL, 2019

Cell Phone Use While Driving Laws

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Primary enforcement hand-held phone use ban for all driversPrimary enforcement texting ban for all driversSecondary enforcement texting ban for all driversPrimary enforcement texting ban for novice/beginner driversNo bans on cell phone use

This map does not include hand-held bans that are limited to certain zones or certain drivers or all cell-phone bans for school bus and novice drivers.

Inits2014report,“DrivercellphoneandtextingbansintheUnitedStates:evidenceofeffectiveness,”IIHSpointsoutthathand-heldbansthatapplytoalldrivershaveresultedinlong-termreductionsinhand-heldphoneuse.However,regardingtheeffectofbansoncrashes,IIHSconcludedafterreviewing11peer-reviewedpapersontheissuethattheresultsareunclear.Furthermore,bansonallphoneusebyteenagedrivershavenotresultedindecreaseduseandtheeffectoftextingbanswasunknown.Inadocumententitled“HandheldBansonCellphoneUse—Effectiveness”(availablefromNCSL),AAAconcurswiththesepreviousfindings.Itstatesthatbanshavereducedhand-heldphoneuseamongdrivers,butthatatthistimetheweightoftheevidencedoesnotclearlyshowtheyhavealastingeffectonreducingcrashes.

Enforceabilityofdistracteddrivinglawshasalsobeenanimportanttopicofdiscussion,butresearchlacksinthisarea.A2017studyconductedbyNHTSAontheenforceabilityoftextinglawsinConnecticutandMassachusettsconcludesthattextinglawscanbeenforcedwhetherthestatehasahand-heldbanornot.Additionally,a2014studyconductedbyNHTSAinCaliforniaandDelawarepointsoutthathigh-visibilityenforcementoverstatewideorlargemulti-jurisdictionareasisfeasibleandmaybeeffectiveinmodifyingbehavior.

STATE LEGISLATION

Lawmakersin48statesconsideredmorethan230billsrelatedtodriverdistractionin2019.Enactedlegislationcoveredarangeoftopicsthatinclude,inparticular,hand-heldbansforallorcertaindriversorincertainspecifiedzones.

Hand-Held BansTwenty-onestatesandtheDistrictofColumbianowbanhand-heldelectronicpersonaldeviceusebyalldrivers.ThosestatesareArizona,California,Connecticut,Delaware,Georgia,Hawaii,Illinois,Maryland,Massachusetts,Maine,Minnesota,NewHampshire,NewJersey,NewYork,Nevada,Oregon,RhodeIsland,Tennessee,Vermont,WashingtonandWestVirginia.

NATIONAL CONFERENCE OF STATE LEGISLATURES 21

Fivestates—Arizona,Maine,Massachusetts,MinnesotaandTennessee—enactedhand-heldbansforalldriversin2019.Foradefinitionofhand-heldban,refertotheboxonpage19.

Massachusetts’(HB4203)newhand-heldbandefineshands-freemodeasanoperationalmodethatusesvoicecommunicationorinvolvesonlyasingletaporswipetoactivateordeactivate.MotoristsreceivedawarningthroughMarch31,2020,afterwhichfinesbecame$100forafirstoffense,$250forasecondoffenseand$500forathirdandsubsequentoffense.Thirdandsubsequentoffensesalsotriggerautoinsurancesurcharges.

Minnesota(HB50),Maine(SB52)andTennessee’s(HB164)hand-heldbansdefinehands-freemodesimilarlytoMassachusetts’law,butpenaltiesvary.Minnesota’slawprovidesfora$275fineforasecondorsubsequentviolation.Firstviolationsarepunishedasapettymisdemeanorandcarryabasefineof$50.Courtsurchargescanpushthetotalhigher.InMaine,theminimumpenaltyforviolatingthisprovisionis$50forafirstinfractionand$250forsubsequentinfractions.InTennessee,driversviolatingthenewlawwillbeguiltyofaclassCmisdemeanorthatallowspointstobeaddedtotheirdriver’srecord.Theywillalsoreceiveamaximumfineof$100plusadditionalcourtcoststhatmustnotexceed$50.Iftheviolationresultedinacrash,themaximumfineis$200.

Arizona’s(HB2318)definitionofwirelessdeviceincludesaportabletelephone,atext-messagingdevice,apersonaldigitalassistantandastand-alonecomputer.Incontrasttothenewhand-heldbansmentionedabove,Arizona’snewlawdoesnotrequireactivationordeactivationbyasingletaporswipe.PeaceofficersmayonlyissueawarningforviolationsthroughDec.31,2020,andcanstartissuingcitationsbeginningJan.1,2021.Offendersaresubjecttoacivilpenaltybetween$75and$149forafirstviolationandbetween$150and$250forasecondandsubsequentviolation.ThenewlawalsoaddedsuchanoffensetothelistthattemporarilydisqualifiesapersonfromreceivingaCDL.However,DMVsarenotallowedtoconsideraviolationofthelawtodeterminewhetheraperson’sdriver’slicenseshouldbesuspended.

Arkansas(SB534)andTennessee(HB164)enactedanall-mobiledeviceusebanwhiledrivingfordriversyoungerthan18.InArkansas,drivers18andolderbutyoungerthan21mayonlyusewirelessdevicesinhands-freemode.Thelawprovidesforexceptionsincasesofemergencyandestablishesnewminimumpenaltiesof$25forafirstviolationand$50foreachsubsequentviolation.InTennessee,penaltiesforviolatorsarethesameasfortheabove-mentionedhand-heldban.

Florida(HB107)enactedanall-driverhand-heldbanonlyforschoolandworkzones.Drivingwhileusingawirelesscommunicationsdeviceinahand-heldmannerisnolongerallowedinadesignatedschoolcrossing,schoolzoneorworkzoneareawhenconstructionpersonnelarepresent.Violatorsaresubjecttoafineandathree-pointassessmentagainsttheirdriver’srecord.First-timeoffenderscanchoosetoparticipateinawirelesscommunicationsdevicedrivingsafetyprograminsteadofthefineandthepointsassessment.Theclerkofthecourtmayalsochoosetodismissacaseifafirst-timeviolatorprovidesproofofpurchaseofequipmentthatenablesawirelesscommunicationdevicetobeusedinahands-freemanner.Theoffendermust,however,payforcertaincourtcosts.Virginia(SB1768)alsopassedahand-heldbanforalldriversinhighwayworkzonesthataremarkedbyappropriatewarningsignswithattachedflashinglightsorothertrafficcontroldevices.Offendersmustbeassessedamandatoryfineof$250.Arkansas(HB1182)amendeditshand-heldbaninschoolzonestomakeviolationsaprimaryoffense.

Illinois(HB86)amendeditshand-heldbanlawtoexplicitlyprohibitwatchingorstreamingvideoandtoestablishnewpenaltiesforviolators(HB2383).Iftheviolationresultsinacrashcausinggreatbodilyharm,theoffenderisnowsubjecttoaminimumfineof$1,000andamandatorydriver’slicensesuspensionofoneyear.California(AB47)amendeditslawstosubjectindividualswhocommitasecondorsubsequentviolationofthehand-heldbanwithin36monthstoapointagainsttheirdriver’srecord.

Texting While DrivingArizona(HB2318)enactedaprimaryenforcementtextingbanforalldrivers.Previously,Arizonahadonlyasecondaryall-mobiledevicebanfordriverswithaninstructionpermit.ThenewlawprovidesthatlawenforcementmayonlyissueawarningforviolationsthroughDec.31,2020,andcanstartissuingcitations

NATIONAL CONFERENCE OF STATE LEGISLATURES 22

beginningJan.1,2021.Offendersaresubjecttoacivilpenaltybetween$75and$149forafirstviolationandbetween$150and$250forasecondandsubsequentviolation.ThenewlawalsoaddedtextingtothelistthattemporarilydisqualifiesapersonfromreceivingaCDL.However,DMVsarenotallowedtoconsideraviolationofthelawtodeterminewhetheraperson’sdriver’slicenseshouldbesuspended.

Florida(HB107)alsochangeditstextingbantomakeitaprimaryinsteadofasecondaryoffense.ThenewlawtookeffectonJuly1,2019,andlawenforcementofficerscouldissueuniformtrafficcitationssincethebeginningof2020.Underthenewlaw,afirsttextingoffensewillbepunishablebya$30fineandcourtfees.Asecondoffensecarriesa$60fine,courtcostsandrelatedfees,andthreepointsonadriver’slicense.Afirstoffenseinvolvingtextinginschoolorconstructionzonescarriesadditionallicensepoints.Firstoffenderscanpurchasehands-freeBluetoothdevicesandshowproofofpurchaseorcompleteadriversafetyeducationcoursetoavoidfinesandlicensepenalties.

Arkansas(SB534)amendeditstextinglawtoestablishnewminimumpenaltiesof$25forafirstoffenseand$50foreachsubsequentoffense.

Miscellaneous Distracted Driving BillsFlorida(HB107)enactedlegislationrequiringlawenforcementofficerstorecordtheraceandethnicityofindividualsreceivingacitationforviolatingitstextingorhand-heldban.Thedatacollectedshallbereportedannuallytothegovernor,thepresidentoftheSenateandthespeakeroftheHouseofRepresentatives.

Illinois(SB1750)addedtoitsaggravatingfactorsthatcouldleadtopenaltyenhancementahit-and-runcommittedbyadriverwhowasusinganelectroniccommunicationdevice.

Teen Drivers Youngdriversages15to20havehighercrashratesthanolder,moreexperienceddrivers.Whiledriverfatalitiesinthe15-to20-year-oldagegroupdeclinedby33%inthe10-yearperiodfrom2008to2017,theNationalCenterforHealthStatisticscitesmotorvehiclecrashesasa leadingcauseofdeathfor15-to20-year-olds.AccordingtoNHTSA,8%ofalldriversinvolvedinfatalcrashesin2017wereyoungdrivers,whilemakinguponly5.4%oftotaldrivers.

TheAAAFoundationforTrafficSafetyfoundin2018thatwhenateendriverwasaccompaniedbyonlyteenpassengersinavehicle,thefatalityrateforallpeopleinvolvedinacrashincreasedby51%.Incontrast,whenteendriverswereaccompaniedbyolderpassengers,theoverallfatalityrateincrashesdecreasedby8%.Thefatalityrateforteendriversishigherbecauseteensaremorelikelytoengageinbehaviorssuchasspeeding,notwearingaseatbeltanddrivingundertheinfluence.NHTSAnotesthatin2017,thepercentageofyoungdriversages15to20whowerespeedingatthetimeoffatalcrasheswashigherthanthatofanyotheragegroup.Further,in2017,oftheyoungdriversinvolvedinfatalcrasheswhereitwasknownwhetherornotrestraintswereused,47%ofthosewhodiedwerenotwearingseatbelts.Ofdriversages15to20whowerekilledincrashes,24%hadBACsof.01orhigher,and20%hadBACsof.08orhigher.

NATIONAL CONFERENCE OF STATE LEGISLATURES 23

Withover12millionlicensedyoungdriversontheroad,statelegislatureshaveconsistentlyconsideredlegislationintendedtoincreaseyoungdrivers’safety,improvedrivingbehaviorsandenhancetheirdrivingskills.

STATE LEGISLATION

Atleast13statesandPuertoRicoenacted23billsin2019relatedtoteendrivers,primarilyfocusedondriver’seducationcourses,driver’slicenseapplications,driver’slicenseexaminationsandgraduateddriver’slicensing.

Driver’s EducationAtleastsixstates—Illinois,Nevada,NewHampshire,NewYork,NorthDakotaandTexas—enactedlegislationin2019concerningdriver’seducationrequirements.

Somestatesexpandedthecontentthatmustbeincludedindriver’seducationcourses.NewYork(SB2960)expandedcoursematerialtoincludeasectiononschoolbussafetyawarenesstoeducateprospectivedriversonthedangersofpassingaschoolbus.Texas(HB105)enactedalawthatrequiresdriver’seducationcoursestoincludecurriculumonsafelyoperatingamotorvehiclenearanoversizedoroverweightvehicle,includinghowtomaintainsafefollowingdistancesandsafelypassthesevehicles.

Otherstatespassedlegislationpertainingtowhenandhowstudentscanmeetdriver’seducationcourserequirements.NorthDakota(SB2157)prohibitedastudentfromenrollinginadrivertrainingcourseifheorshewouldbeyoungerthan14uponcompletingtheclassroomportionofthecourse.Additionally,studentswererequiredtobeatleast14yearsoldtoparticipateinthe“behind-the-wheel”componentofthecourse.Nevada(AB338)nowallowsprospectivelicenseesyoungerthan18tocompleteanapprovedhands-ondefensivedrivingcourseinlieuofcompleting50hoursofsuperviseddrivingtoobtainadriver’slicense.

NewHampshire(SB40)enactedalawprovidingthatnomorethan15hoursoftheclassroominstructioncomponentofdriver’seducationmaybesatisfiedthroughanonlinecourse.Illinois(HB2087)allowedastudenttotakeaportionofadrivereducationcourseonline.Aschooldistrictmustdecideonacase-by-casebasiswhetherastudentisallowedtotakeaportionofadrivereducationcourseonline.Theschool’sdrivereducationteacher,aswellasthestudent’sparentorguardian,mustalsoapprove.

Minors’ Driver’s License ApplicationsIn2019,Texasenactedtwobillspertainingtominors’driver’slicenseapplications.

Texas(HB87)requiredthestateDepartmentofPublicSafety(DPS)toprovideanapplicantyoungerthan18andthecosignerwithinformationondistracteddrivinglaws.Previously,thestateDPSwasonlyrequiredtoprovideinformationonlawsrelatingtodrivingwhileintoxicated.

Further,Texas(HB2551)enactedlegislationclarifyingthatapplicantsyoungerthan18musthavetheirapplicationsignedbyaparent,guardianoranagentholdingapowerofattorneyforthecustodialparent.

Driver’s License ExaminationsAtleasttwostates—GeorgiaandNevada—enactedlegislationin2019regardingdriver’slicenseexaminations.

Georgia’snewlaw(SB212)specifiesthatanauthorizeddrivertrainingschoolcanconductanon-the-roaddrivingskillstestifanapplicanthascompletedaclassroomoronlinedrivertrainingcoursewithaminimumof30classhours.Theapplicantmustalsohavecompletedsixhoursofin-carinstructionwithaninstructorwhoisemployedbythedrivertrainingschoolandadministeringtheroadtest.

Nevada(AB363)enactedlegislationwaivingthedriver’slicenseexaminationfeeforhomelessyouthundertheageof25whosubmitanaffidavitthattheyarehomeless.

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NATIONAL CONFERENCE OF STATE LEGISLATURES iv

Graduated Driver’s LicensesFourstates—Arkansas,Iowa,LouisianaandMichigan—passednotablelegislationconcerninggraduateddriver’slicenses(GDLs)in2019.

Michigan(SB192,SB193)amendedlawsonnighttimedrivinghours.Michigan’snewlaw(SB192)waivedarequirementtocompleteatleast10nighttimedrivinghoursfora“Level2”graduatedlicenseifthedriverholdsagraduatedlicensethatpermitsdaylightdrivingonly.A“Level2”graduatedlicenseisissuedtodriversbetween16and17yearsold.Moreover,thenewlaw(SB193)waivedarequirementforastudent’sadmissionintoa“Segment2”drivereducationcourse,whichmustbecompletedtobeeligiblefora“Level2”graduatedlicense.Thestudentnolongermustcompleteatleasttwonighttimedrivinghoursifheorsheholdsagraduatedlicensethatpermitsdaylightdrivingonly.Toenrollina“Segment2”drivereducationcourse,adrivermusthavehelda“Level1”supervisedlearner’slicenseforatleastthreecontinuousmonths.A“Level1”supervisedlearner’slicenseisissuedtodriverswhoareatleast14yearsand9monthsofage.

Louisiana(HB379)enactedlegislationrequiringaminor’sparentorlegalguardiantoprovidedocumentationrelatingtotheminor’sdrivingbehavior.Theinformationmustincludeanymovingviolations,seatbeltorcurfewviolations,oralcoholordrugviolationsbeforetheminor’slearner’slicenseisconvertedtoanintermediatelicense.

Arkansas(HB1406)reviseditsintermediatedriver’slicenselawtoallowintermediatelicenseholderstorenewtheirlicenseasaregulardriver’slicensewithin30daysofturning18,solongastheyarefreeofseriousaccidentsortrafficviolationsforatleast12monthsbeforeturning18.Anintermediatelicenseisissuedtodriversbetween16and18yearsold.

Iowa(SenateFile140)allowedstudentswithaschooldriver’slicense,whichisissuedtodriversbetween141/2and17yearsoldwhoattendanaccreditednonpubicschool,todriveupto50mileseachway.Previously,studentswerelimitedto25mileseachway.

NHTSAhasdevelopedguidelinestocreateaneffectiveGDLprogram.AlthoughGDLlawsvaryfromstatetostate,allGDLapproachesconsistofthreestagesidentifiedbythetypeoflicense,provisionsandrestrictions.Beforeadvancingtothenextlevel,novicedrivers15to18yearsoldmustdemonstrateresponsibledrivingbehaviorduringeachstateoflicensing.

Stage 1: Learner’s Permit• Minimumage• Minimumduration• Requiredsuperviseddrivinghours

Stage 2: Intermediate (Provisional) License• Minimumage• Nighttimedrivingrestriction• Passengerrestriction(exceptforfamily,unlessnoted)

Stage 3: Full Licensure• Minimumage

Source: NHTSA Teen Driving Page

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Older DriversAccordingtoNHTSA,around52.4millionpeople—16%ofthetotalU.S.residentpopulation—were65andolderin2018.AspointedoutbytheAmericanGeriatricsSociety(AGS),theolderpopulationisincreasing,thenumberofolderdriversisgrowingrapidlyandtheyaredrivinglongerdistances.Olderdriversmadeup20%ofalllicenseddriversin2018.Inthelast10years,thenumberofolderindividualswhoarelicensedhasincreasedby35%.Thisupwardtrendwillcontinue.AGSestimatesthatthepopulationofadults65andolderwilldoubleby2060,makingupatleast20%ofthetotalU.S.population.

Whilein2018drivers65andolderhadthelowestinvolvementrateinfatalcrashes—16.15per100,000licenseddrivers—fatalitiesincrashesinvolvingolderdrivershavebeensteadilyrising.NHTSAreportsthatbetween2009and2018,thenumberoftotalfatalitiesincrashesinvolvingdriversages65andoverincreasedby32%,from5,613to7,433.

Althougholderdriversareconsideredrelativelysafedriversandmanyolderadultsself-regulatetheirdrivingbehavior,AAAnotestheyhaveahigherriskofsufferingfromatleastonemedicalconditionthataffectssafetywhiledriving.Olderdrivers’risksaretypicallydiscussedintermsoftheagingprocess—fragilityincreasingwithageanddecliningfunctionsneededforgooddrivingskills,suchasvision,hearing,reactiontime,andcognitiveandmotorabilities.Conditionssuchasdementia,arthritis,diabetes,heartdisease,sleepapneaandParkinson’sdiseasecaninterferewiththeabilitytodriveandsomeofthemmakerecoveringfrominjurymoredifficult. AAAandAGSrecommendthatolderdriversconsidergettingaprofessionaldrivingassessmentandrepeatitperiodically.

BasedonthelateststatisticsfromNHTSA,in2018,6,907peopleaged65yearsandolderlosttheirlivesinmotorvehiclecrashes,a1%increasefrom2017.Motorvehiclesaretheleadingcauseofinjury-relateddeathsamong65-to74-year-oldsandthesecondleadingcauseamong75-to84-year-olds.

STATE LEGISLATION

Existingstatelegislationregardingolderdriversmostlyfocusesondecreasingperiodsbetweenlicenserenewalsandrequiringmorefrequentvisiontestsfordriversoveracertainage.Manystatesalsobarolderdriversfromrenewingtheirdriver’slicensebymailoronline.

Whenaddressingolderdrivertrafficsafetylegislation,stateshavetobalancesafetywithindividualrightsandfreedoms.Settingasidevisionrequirements,determiningwhenanolderpersonisnolongerabletodrivesafelydependsonavarietyoffactors.Inthisregard,statelegislationispurposefullybroadandgenerallyprovidesdiscretiontomedicalproviderswhenmakingsuchadecision.

Thirteenstatesareconsideringorhaveconsideredlegislationonarangeoftopicsrelatedtoolderdrivers.Theseincludeextendingordecreasingthenumberofyearsbetweenlicenserenewals,requiringmorefrequentvisionandabilitytests,placingoptionalmedicalalertordisabilitynotationsondriver’slicenses,andemploying“yellowdot”programs.

Hawaii(HB30),forexample,hasapendingbillrequiringpersonswhoare72andoldertorenewtheirdriver’slicenseeveryfouryearsinsteadofeverytwoyears.Illinois(HB1657,HB1658)isconsideringabolishingtherequirementsforapplicantswhoare75andoldertogiveanactualdemonstrationoftheirabilitytoexercisereasonablecontrolandsafelyoperateamotorvehicle.HB1657isalsoconsideringputtinganendtotherequirementthatdriver’slicensesofpeoplebetween81and86yearsoldexpireafteronlytwoyears.

Tennessee(HB360)consideredbutwithdrewlegislationrequiringanapplicantwhois75oroldertosuccessfullypassavisionexamination,includingtestingaperson’snightvisionperformance.Ifdiagnosedwithimpairednightvision,thatpersonwouldhavebeenrestrictedtodaytimedrivingunlessheorsheusednightvisionequipmentwhileoperatingamotorvehicleafterdark.

Inaddition,NewYork(SB3275)haspendinglegislationthataimstoestablisha“yellowdot”programfordriversandpassengerswhoare55andolder.Undertheprogram,seniorscanrequestandreceivebymailandateverymotorvehicleofficeinthestateayellowdotdecalandadurableyellowenvelope.Theenvelope

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ismeanttocontainmedicalandemergencycontactinformationoftheoccupantsofavehicle.Thedecal,whichwouldbeplacedonthelowerleftcorneroftherearwindow,indicatestoemergencyrespondersthatthisinformationmaybelocatedinthevehicle’sglovecompartment.ThiswastheseventhconsecutiveyearsuchlegislationhasbeendiscussedinNewYork.Florida(SPB7090)alsodebatedbutdidnotpasslegislationthatwouldauthorizecountiestocreateayellowdotprogram.

AfailedbillinNewJersey(A1607)consideredrequiringmunicipalcourtstodismissanychargesformotorvehicleviolationsbroughtagainstalicenseddriverincertaincrashesifaphysiciancertifiesthecrashwouldnothaveoccurredexceptfortheonsetorexistenceofamedicalcondition.

Driver’s Licensing ThestatesandtheDistrictofColumbialicensenearly222milliondriverswhorepresentroughly85%oftheAmericanseligibletodrive,accordingtotheFederalHighwayAdministration(FHWA) . FHWA’srecordsshowthatstateshaveadministeredtheirdriver’slicensingsystemssince1903,whenMassachusettsandMissourienactedthefirststatedriver’slicensinglaws.FHWAalsonotesthatby1954,allstatesrequireddriverstobelicensed,andsince1959,allstateshaverequiredanexaminationtotestdrivingskillsandtrafficsafetyknowledgebeforealicenseisissued.

STATE LEGISLATION

Theroleofstatelicensingagencieshasevolved,however,fromsolelytestingdriversandissuinglicenses.Thedriver’slicensenowservesapurposebeyondtrafficsafety,asbothgovernmentandprivateentitiesrelyonitforpersonalidentification.Thus,statelegislaturesanddriver’slicenseagenciesareconcernedaboutthesafetyandsecurityofusingthelicenseasanidentifier.

In2019,statelegislaturesdebatedmorethan700billsandenactedover100lawsrelatedtovariousaspectsofdriver’slicenses.TheyincludeCDLs,driver’slicenseandinstructionpermits,digitaldriver’slicenses,medicaldesignationsondriver’slicensesandvalidityofmedicalcertificates,anddriver’slicensesuspensions,revocationsandrestorations.Thebillssummarizedinthissectionlargelyfocusonnotablechangesrelatedtoroadsafety.

Commercial Driver LicensesIn2019,sixstates—Alaska,Missouri,Montana,NorthDakota,VirginiaandWestVirginia—enactedsixbillsaddressingCDLs.Theprovisionsofsuchlawsrangedfromissuanceandrevocationtoknowledgeandskillstestingandmandatorydrivertrainingcourses.

Threestates—Alaska,MissouriandWestVirginia—amendedlawsgoverningtheissuanceofCDLs.Alaska(SB75)loweredtheminimumagetooperateacommercialvehicleonanintrastatebasisfrom19to18yearsofage.Thestatealsoloweredtheminimumagetooperateonaninterstatebasisfrom21to18ifallowedunderfederallaw.Missouri(SB89)extendedtheperiodforwhichaninstructionpermitisvalidfromsixmonthsto12monthsandspecifiedthatsuchpermitscannotberenewed.WestVirginia(HB2850)reducedtheminimumlengthoftimeapersonmustpossessadriver’slicensepriortotheissuanceofaCDLinstructionpermitfromtwoyearstoatleastoneyear.

Twostates—MontanaandVirginia—outlinedadditionalcircumstancesinwhichCDLholdersmayhavetheirlicensesrevoked.Montana(HB515)requiredthestateDMVtopermanentlyrevokeaperson’sCDLuponconvictionofhumantraffickingoffensescommittedusingacommercialvehicle.Virginia(SB1481)imposedalifetimedisqualificationforCDLholdersuponconvictionoffelonydrugoffensescommittedusingacommercialvehicle.

Threestates—Missouri,MontanaandVirginia—amendedknowledgeandskillstestingprovisionsformilitaryapplicants.Missouri(SB89)allowedthewrittentesttobewaivedformilitaryapplicants.Previously,thelawonlyallowedtheskillstesttobewaived.Montana(HB515)allowedtheknowledgetest,inadditiontotheskillstest,tobewaivedformilitaryapplicantswhoalreadypassedaknowledgetestgivenbythemilitary.Virginia(SB1481)allowedtheknowledgetestandskillstesttobewaivedformilitaryapplicants.

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Additionally,NorthDakota(SB2121)allowedthestateDOTtoacceptaknowledgetestfromanotherstateasevidenceofcompletionforissuanceofCDL.Previously,onlytheskillstestwasaccepted.

Missouri(SB89)andVirginia(SB1481)requiredentry-leveldrivertrainingforfirst-timeCDLapplicants.

Driver Licenses and Instruction PermitsIn2019,sevenstates—Arkansas,Illinois,Montana,NewMexico,NewYork,OregonandVirginia—enactedsevenbillsaddressingnon-commercialdriver’slicensesandinstructionpermits.

Threestates—Montana,NewMexicoandOregon—amendedlawsgoverningdriverlicenseandinstructionpermitissuance,validityandreplacement.

Montana(HB515)requiredaresidentialaddresswithinthestatetobeusedforaREALID-compliantcredential,requireddriverlicensestocontainabriefdescriptionofthelicensee,andallowedreplacementdriverlicensestobeorderedonlineorbymailifthestateDMVhasaphotooftheapplicantandthetermofthelicensestaysthesame.Additionally,thelawallowedrenewalnoticestobesentelectronically.

NewMexico(SB278)establishedtwotypesofdriverlicenses,aREALID-compliantandastandardlicense,eachdistinguishedbytheiruseornon-useforofficialfederalpurposes.Additionally,thelawspecifiedthatdriver’slicensesarevalidforfouroreightyearsfromtheirissuancedate.Previously,theexpirationdatewaslinkedtothelicensee’sbirthday.Oregon(HB2015)removedlanguagerequiringanapplicanttoprovideproofofU.S.citizenshiporlawfulpresencebeforethestateDOTmayissue,reneworreplaceanon-commercialdriver’slicense,permitoridentificationcardifthecredentialisnotREALID-compliant.

Fivestates—Arkansas,Illinois,Montana,NewYorkandVirginia—amendedlawsaddressingmandatorydrivertraining,drivertestquestionsandacademicrequirements.

Arkansas(HB1867)eliminatedlanguagerequiringindividualsyoungerthan18tosubmitahighschooldiploma,itsequivalentorproofofaCaverageinschoolbeforeadriver’slicensemaybeissuedwithoutrestrictions.Illinois(SB2038)requiredthedriver’slicenseknowledgetesttoincludequestionsaddressingdriverresponsibilitieswhenapproachingastationaryemergencyvehicle.

Montana(HB515)alloweddriverrehabilitationandimprovementprogramstoofferelectronicinstruction.NewYork(SB3965)directedthestateDMVtoestablishapilotprogramforonlinemotorvehicleprelicensingcourses.Virginia(HB2717)allowedthecourseonthe“VirginiaDriver’sManual,”whichisrequireduponfailingthedriverknowledgeexamthreetimes,tobeofferedonline.Previously,onlyclassroominstructionwaspermitted.

Digital Driver’s LicensesLouisianain2016becamethefirststatetoenactlegislationallowingadigitaldriver’slicense.Itexpandedthelawin2018,requiringdigitallicensestobeuploadedthroughaspecificmobiledeviceapplicationconsideredtobeavaliddigitizedidentification.Atleast14otherstateshavedevelopedoraredevelopingadigitaldriver’slicenseprogramorrunningapilotprogram.

In2019,twostates—IndianaandUtah—enactedlegislationauthorizingorrequiringdigitaldriver’slicensesandoneadditionalstate,Illinois,modifiedcertainaspectsofitsdigitaldriver’slicenseprogram.

Indiana(HB1506)authorizedthestateBureauofMotorVehiclestoimplementadigitalcredentialingsystemfordriver’slicenses,learner’spermitsandidentificationcards.Thelawalsostatedthata“mobilecredential”doesnotincludeacommercialdriver’slicenseorinstructionpermit.Utah(SB100)requiredthestateDriverLicenseDivisiontoestablishaprocessandsystemforapplicantstostartobtainingadigitallicenseonorbeforeJan.1,2021.

Illinois(HB3534)allowedapplicantstochoose“male,”“female”or“nonbinary”whendesignatingagendertobedisplayedonadigitaldriver’slicenseoridentificationcard.

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Medical Designation on Driver’s Licenses and Validity of Medical CertificatesInthelastfewyears,ahandfulofstateshaveconsideredorpassedlegislationthatwouldallowformedicaloremergencyinformationtobedisplayedonadriver’slicense.StatessuchasGeorgiaandLouisianaallowdriver’slicenseapplicantstorequesttheirbloodtypebelistedonthebackoftheirlicense.InTexas,driver’slicenseapplicantscanrequesta“communicationimpediment”notationontheirlicensetoalertapeaceofficerofacognitivedisabilityorhearingimpairment.Billssummarizedinthissectionrelatetomedicaldesignationsandvalidityofmedicalcertificatesforthegeneralpopulation.BillsspecificallyregardingolderdriversaresummarizedintheOlderDriverssection.

Wyoming’senactedlegislation(HB191)authorizedamedicalalertdesignationonaperson’sdriver’slicense.Medicalalertdesignationsprovideinformationonamedicalconditionthatmayneedimmediateattentionduringanemergency.PuertoRico(SB1102)authorizedpersonswithautismspectrumdisorderorDownsyndrometorequestthatinformationbeincludedontheirdriver’slicense.

PuertoRico(HJR493)extendedthevalidityofmedicalcertificates,includingvisiontests,forpurposesofdriver’slicenseissuanceorrenewalfromsixto12months.Maryland(SB60)extendedthevalidityofavisiontestforindividualsbetweentheagesof21to39fromsixtonineyears.

Driver’s License Suspension, Revocation and Restoration Inrecentyears,statelegislatureshaveconsideredrepealinglawsthatsuspenddriver’slicenses,inparticularfornon-drivingoffenses.TheAmericanAssociationofMotorVehicleAdministratorsnotesthatsuspendingdrivingprivilegesfornon-highwaysafety-relatedreasonsisnoteffective,canstrainDMVbudgetsanddetractfrompublicsafetypriorities.

Whileitisnotalwayseasytoclearlydefinewhatconstitutesanon-drivingoffense,thiscategorygenerallyincludesviolationsthatarenotdirectlyrelatedtoanindividual’sdrivingbehavior.Theseincludeparkingviolations,possessingorsellingdrugs,andnon-paymentofchildsupportorfinesandfeeswhentheunderlyingoffenseisnotamovingviolation.Thelackofadriver’slicensecanmakeitharderforindividualstomeettheirfinancialobligationswhentheyareunabletodrivetowork.Asaresult,somestatesarereevaluatingsuspendingdriver’slicensesforunpaidfinesandfeesunrelatedtodrivingtoreducedisparities,increasetransparencyandenhanceproceduraljusticewhilealsoimprovingcommunitysafety.

Federallaw(23CFR192)requiresstatestosuspendorrevokethedriver’slicenseofanyoneconvictedofaviolationoftheControlledSubstanceActoranydrugoffense.Statescanlosefederalhighwaymoneyiftheyarenotincompliance.However,statescanoptoutbysubmittingacertifiedstatementfromthegovernororaresolutionpassedbythestatelegislature.

Asoftheendof2019,43statesandWashington,D.C.,hadoptedoutofthefederalrequirement.Sevenstates—Alabama,Arkansas,Florida,Michigan,NewJersey,TexasandVirginia—stillsuspenddriver’slicensesfordrugoffensesunrelatedtodriving.Ofthesestates,Arkansas,FloridaandNewJerseyamendedtheirlawsthisyear,asexplainedinmoredetailbelow.

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Licenserevocationisaterminationoftheprivilegetodrive.Licensesuspensionisatemporarywithdrawaloftheprivilegetodrive.Revocationsandsuspensionscanbeindefiniteorforadefinedperiodoftime,andrevocationscan,incertaincircumstances,bepermanent.Restorationorreinstatementofthedrivingprivilegegenerallyreferstotheprocessdriversmustgothroughtohavetheirdrivingprivilegerestored.Suchaprocesscanonlybeinitiatedaftercertainconditionshavebeensatisfied.

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License Suspension for Driving Offenses

Fourstates—Arizona,Illinois,KansasandMissouri—enactedlegislationmandatingdriver’slicensesuspensionforcertaindrivingoffensesorestablishingminimumsuspensionperiodsforsuchoffenses.Alaskaenactedlegislationimposingstricterpenaltiesforrepeatoffenderswhodrivewithasuspendedlicense.Twostates—MaineandWestVirginia—enactedlegislationreducingthesuspensionperiodforcertaindrivingoffenses.InWestVirginia’scase,offenderswillneedtocomplywithcertainrequirements.Finally,FloridaandLouisianasoftenedpenaltiesfordrivingwitharevokedorsuspendedlicense.Floridaexcludedcertaindrivingoffensesfromitsnewlaw,includingallDUIoffenses.

Arizona(HB2366)amendeditsdriver’slicensesuspensionlawstoincludeamandatorysuspensionorrestrictionofaperson’sdrivingprivilege.Thesuspensionlastsforatleast90to180dayswhenafirstmovingviolationresultsinseriousphysicalinjuryand180daystooneyearwhentheviolationresultsindeath.Previously,thelawdidnotincludeminimumtimeperiodsandauthorizedsuchasuspensionorrevocationbutdidnotmandateit.

Illinois(HB1438)added“validatedroadsidechemicaltests”toitsimpliedconsentlawsandmandateda12-monthdriver’slicensesuspensionfordriverswhorefusetosubmittosuchtests.Theamendmentsalsomandateasix-monthsuspensionfordriverswhosetestdeterminestheywereimpairedbycannabis.Previously,thelawonlymentionedfieldsobrietytestsregardingdriver’slicensesuspensions.Illinois(SB2382)alsomandateda12-monthdriver’slicensesuspensionfordriverswhoviolatetherightofwayatcrosswalksandinschoolzonesandcauseaninjurythatrequires“theinjuredpartytobecarriedfromthescene.”

Kansas’(HB2104)amendeditsbreath,saliva,bloodandurinetestingstatutestoincludeaone-yeardriver’slicensesuspensionforindividualswhorefusetocompletesuchatestinsteadofthepreviousfineof$105.

Missouri(SB89/HB499)requiredrevokinganindividual’sdriver’slicenseif,bynegligence,thedrivercauseda“physicalaccident”andcontributedtohisorhervehiclestrikingahighwayworkerworkingwithinadesignatedconstructionzoneoranemergencyresponderwithinanactiveemergencyzone.Toreinstatetheirlicense,driversmustretakeandpassthewrittenanddrivingportionsofthedriver’slicenseexamination.

Alaska(HB49)makesdrivingwithasuspendedorrevokedlicense,independentlyofthecauseofthesuspensionorrevocation,aclassAmisdemeanorforrecidivists.Previously,drivingwithasuspendedorrevokedlicensewasacriminaloffenseonlyfordriverswhoselicensewassuspendedorrevokedforcertainmajoroffenses,includingcausingdeathinamotorvehiclecrashandrefusingtosubmittoachemicaltest.

Maine(HB815)decreasedthedriver’slicensesuspensionperiodfromthreeyearstooneforoffenderswhonegligentlyoperatedamotorvehicleandcausedthedeathofanotherperson.

WestVirginia(SB90)allowedtheDMVtoreducethedriver’slicenserevocationperiodrequiredofapersonwithasecondorsubsequentoffensefordrivingundertheinfluenceofdrugs.TheDMVmaynowreducetherevocationperiodofsuchanoffendertoaminimumofoneyear.Itmayissuearestrictedlicensefollowingthatperiodifthedriverparticipatesinthestate’streatmentandjobprogram,successfullycompletesthetreatmentandagreestomonthlydrugtestingfortwoyears.Ifthepersonfailsatestorfailstosubmittoatest,thefullrevocationperiod,minusrevocationtimeserved,willbereinstated.

Florida(HB7125)reducedpenaltiesassociatedwithdrivingwithasuspendedorrevokedlicenseforathirdorsubsequentoffensefromathird-degreefelonytoafirst-degreemisdemeanorandrequiresanoffendertoserveaminimumof10daysinjail.However,penaltiesforathirdorsubsequentoffensewerenotmodifiedforsuspensionsorrevocationsresultingfromDUI,refusaltosubmittoatest,atrafficoffenseresultingindeathorseriousbodilyinjury,orfleeingoreluding.

Louisiana(HB224)authorizedlawenforcementtousetheirdiscretiontoissueawrittensummonsinsteadofarrestinganindividualwhodrovewithasuspendedorrevokedlicense.

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License Suspension for Non-Driving Offenses

Fourstates—California,DelawareandFloridaandNewJersey—nolongerauthorizeorrequiredriver’slicensesuspensionforcertainnon-drivingoffenses,includingillegaluseorpossessionofcontrolledsubstances.Additionally,Arkansas,FloridaandNewJerseysoftenedtheirlawsinthisregard,withFloridaandNewJerseyreducingsuspensionperiodsfornon-drivingoffensesthatstillrequireasuspension.Marylandreducedpenaltiesforindividualsconvictedofpossessingacanceled,revokedorsuspendedlicense.

California(SB485)repealedacourt’sauthoritytosuspendordelaythedrivingprivilegeofanindividualconvictedofoffensesrelatedtovandalism,controlledsubstancesoralcoholuseorpossession,firearmuseandcertainprostitutionoffenses.

Delaware(SB44)lawnolongermandatesadriver’slicensesuspensionforindividualsyoungerthan21whopossessorconsumealcohol.Previously,thelawincludedamandatorysuspensionof30daysforafirstviolationandbetween90and180daysforeachsubsequentviolation.

NewJersey(SB1080)repealedmandatorydriver’slicensesuspensionforsimplepossessionofillegaldrugsandlimitedsuspensionrequiredforotherpossessionoffensesorsaleofillegaldrugstosixmonths.Italsoeliminatedmandatorydriver’slicensesuspensionforothernon-drivingoffenses,includingautomaticsuspensionfornon-paymentofchildsupport.However,inthesecases,courtsretaindiscretiontosuspendtheperson’sdriver’slicenseifitfindsthatsuspensioniswarranted.

Florida(HB7125)reformeditsdriver’slicensesuspensionandrevocationlawsforadultsandminors—definedasyoungerthan18.Thenewbillshortenedthesuspensionperiodfromoneyeartosixmonthsforindividualswhohaveadriver’slicenseandareconvictedofdrugoffenses,suchaspossession,saleortrafficofdrugs,butnotDUID.Therevocationperiodisextendedforsixmonthsinsteadofoneyearforindividualswhocommitaseconddrugoffenseduringtherevocationperiod.Individualswhodonotpossessadriver’slicensearebarredfromobtainingoneforsixmonths(previouslyoneyear)fromthedateofconvictionoreligibility,whicheverislater.

Additionally,thenewlawlimitedthelevelofdiscretionacourtcouldexercisetojustifyissuingahardshiplicenseandnowrequiresfindingcompellingcircumstances.Thenewlawalsorepealedseveralbasesforsuspensionsforminors,suchaspossessionorpurchaseofalcohol,tobaccoandnicotine,andconvertedmandatorysuspensionsforpossessingafirearmorplacinggraffitionanypublicorprivatepropertyintodiscretionarysuspensions.Suspensionsforadultsconvictedofprovidingalcoholtoaminorwerealsorepealed.IndividualsowingchildsupportwhoenterintoanagreementwiththeDepartmentofRevenuetoaccommodatetheirgood-faithjob-seekingeffortswillseetheirdriver’slicensesuspensiondeferredorhavetheirlicensereinstatedifitisalreadyundersuspension.

Arkansas(SB513)reviseditsprovisionsrelatedtothesuspensionofdriver’slicenseforpossessingacontrolledsubstancetoauthorizejudgestomakeanexceptionwhenthereare“compellingcircumstances”thatwouldwarrantone.Previously,courtsdidnothaveanydiscretioninsuchcasesandweremandatedtoorderthesuspensionofdrivingprivilegesforsixmonths.

Maryland(HB76)alteredthepenaltiesforindividualsconvictedofpossessingacanceled,revokedorsuspendedlicense.Thenewlawprovidesforafineofupto$500andanassessmentofthreepointsagainsttheperson’slicense.Previously,12pointswereassessed,andindividualsweresubjecttouptotwomonthsimprisonmentinadditionoralternativelytothefine.Theamendmentalsorepealedtherequirementforoffenderstoappearincourtiftheyprepaythefine.Defendantsstillhavetheoptionofrequestingatrialorwaiverhearinginsteadofpayingthefine.

License Suspension for Failure to Pay Fines and Fees

Inanimportanttrendin2019,severalstatesenactedlegislationregardingdriver’slicensesuspensionforfailuretopayfinesandfees,independentlyofwhethertheunderlyingviolationwasamovingornon-movingviolation.Amovingviolationisanyviolationofthelawcommittedbythedriverofavehiclewhileitisinmotion.

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Atleast10states—Arkansas,Indiana,Kansas,Louisiana,Montana,Nevada,NewJersey,NorthCarolina,TennesseeandWestVirginia—repealedprovisionsauthorizingdriver’slicensesuspensionfornon-paymentoffinesandfeesoramendedtheirlawstoallowforextendedpayperiods,reductions,waiversoralternativepenalties.Onestate—Alabama—addedfailuretopaycertainparkingfinestothelistofpermissiblereasonsforacourttosuspendadriver’slicense

Arkansaslawrequiresdriverswhoselicenseissuspendedbecauseofanadministrativeorderoraconvictionforanyviolationoroffensetopayareinstatementfeeof$100multipliedbythenumberofadministrativeorcourtsuspensionorderstheyhave.SB493reneweda2017actthatexpiredinJanuary2019thatallowedforaone-timewaiverofmultiplereinstatementfeesforindividualswhosedrivingprivilegesaresuspendedorrevokedexclusivelybecauseofoutstandingreinstatementfees.Beforeobtainingthewaiver,individualsmustgraduatefromaspecialtycourtprogram.ThewaiverdoesnotapplytoholdersofCDL,suspensionforDUI,underageDUIorrefusaltosubmittoatest.TheenactedbillrequirestheDepartmentofFinanceandAdministrationtoprepareanannualreportincludingthenumberofeligibleparticipants,thenumberofparticipantsreinstatedundertherenewedlaw,andtheamountpaidandwrittenoff.

Indiana(HB1141)establishedatemporarytrafficamnestyprogramtoallowdriverstoobtaina50%reductionintheamounttheyoweorhavetopay.ThereducedfineisforthoseowingunpaidtrafficfinesforcertainoffensescommittedbeforeJanuary2019,alongwithassociatedcourtandadministrativefees,orwhoarerequiredtopayareinstatementfee.Theprogramisnotapplicableforpersonswhoowechildsupport,haveanoutstandingarrestwarrant,aresentencedtopayrestitutiontovictimsofacrime,andarenotcurrentwiththerequiredpayments.

Kansas(HB2211)allowsacourttoreassessorwaiveareinstatementfee,ormodifythemethodofpayment,ifitbelievespaymentwill“imposemanifesthardship”ontheindividualwhoselicensewassuspendedortheindividual’simmediatefamily.

Louisiana(HB397)amendeditsdriver’slicensesuspensionlawtomandatethatacourtgrantanextensionofupto180daystopaythefineorofferthealternativeofperformingcommunityservice.Theextensionisforindividualswhoshowtheyarefinanciallyunabletopayafineforanycriminaloffenseattheexpirationofanalreadyextendedperiodgrantedbythecourtunderpreviouslaw.Attheexpirationoftherenewedextension,iftheindividualhaswillfullynotpaidthefineorhasnotperformedtherequiredcommunityservice,thejudgeisauthorizedtosuspendthedriver’slicenseforfinesrelatedtooffensesthatinvolvetheoperationofamotorvehicle,aircraftorwatercraft.Alternatively,ajudgemaygrantarenewedextensiontoeitherpaythefineorperformthecommunityservice.However,inanycase,acourtmustdeterminethatadefendantisfinanciallyablebutiswillfullyrefusingtopayafineorperformcommunityservicewhenorderinganindividualtosurrenderhisorherdriver’slicenseforfailuretopayafine.

Montana(HB217)amendeditssentencingstatutesandrepealedprovisionsauthorizingsuspensionofadriver’slicenseasasentencingoptionfornon-paymentoffines,feesorrestitution.Ajudgemaystillimposeasuspensionifaconvictedindividualfailstocomplywithanyotherpenalty,restrictionorconditionofthesentence.Thenewlawalsorepealsaprovisionrequiringindividualstopaythefines,feesorrestitutionsowedbeforebeingabletohavetheirlicensereinstatedandwaivesthereinstatementfeeforsuchindividuals.

Nevada(AB416/AB434)lawallowscourtstosuspendadriver’slicenseordelaythedrivingprivilegeforindividualswhoowefines,feesorrestitution.Thenewlyenactedlawspecifiesthatthecourtmayonlyorderthesuspensionordelayofthedrivingprivilegeifitdeterminesthatthedefendantcanpaytheamountduebutiswillfullyavoidingpaymentorrefusedtoperformcommunityservice.

NewJersey(SB1080)eliminatedmandatorydriver’slicensesuspensionfornon-drivingoffenses,includingfornon-paymentoffinesandfees.However,inthesecases,courtsretaindiscretiontosuspendtheperson’sdriver’slicenseifitfindstheoffenderhasdefaultedwithoutgoodcause.Whendecidingthedurationofanysuspension,itwillbenecessarytoconsiderwhetherthelossofdrivingprivilegeswillresultinextremehardshipbecausealternativemeansoftransportationarenotavailable.

NATIONAL CONFERENCE OF STATE LEGISLATURES 32

NorthCarolina(HB206)allowsarestorationfeeforrevokedlicensestobewaivedifthefeeremainsunpaidfor10yearsfromthedateofassessmentandthepersonowingthefeehasbeenissuedadriver’slicensesincetheeffectivedateoftherevocation.

Tennessee(HB0839/SB1143)amendeditsdriver’slicensesuspensionlawstorequirecourtstodeterminewhetheralicenseecanpaythefinesandfeestheyowefordrivingoffensesorwhethertheyarewillingtoenterintoareasonablepaymentplanbasedontheirincomeandabilitytopay.Suchaplancanbemodifiedwhenthereisachangeinthelicensee’sfinancialcircumstances.Arestrictedlicenseallowingtravelnecessaryforemployment,schoolorreligiousworshipmustbeissuedtolicenseesthatareindigent,andthecourtmusttemporarilysuspendtheindigent’sfinesandfeesimposedforanycriminaloffense.Thecourtmaysubsequentlywaivethefinesandfeesorordertheindigentpersontoreappearbeforethecourtforareevaluationoftheirfinancialcircumstances.Arestrictedlicensemustalsobeissuedforlicenseeswhoenterintoapaymentplanuntilthefullamountispaid.

WestVirginia(SB90)requirestheDMVtostayanydriver’slicensesuspensionforfailuretopayfinesorpenaltiesimposedforcriminalconvictionsorfailuretoappearincourt.Italsowaivesthereinstatementfeeforindividualswhoaresuccessfullyparticipatinginthetreatmentandjobprogramandarebelievedtobesafetodrive.Thestaywillberemovedforindividualswhosubsequentlyfailtocomplywithanyoftheprogram’srequirements.

Alabama(HB190)enactedlegislationallowingacourttosuspendthedriver’slicenseofapersonwhofailstopayafineforviolatingparkingrulesonDepartmentofConservationandNaturalResourcesproperty.

Reinstatement of Driving Privileges

Twostates—AlaskaandFlorida—enactedlegislationregardingreinstatementofdrivingprivileges.

Alaska(HB49)includedadditionallimitationstoitsdriver’slicenserestorationlawsforrepeatDUIandDUIDoffendersandforrepeatoffenderswhorefusetosubmittoachemicaltest.Thenewlawspecifiesthatforsuchoffenders,adriver’slicenserevocationcanonlybereviewediftheoffenderwasnotconvictedofamajorcrime,suchasfirst-degreemurder,andhasnotbeenconvictedofotherdriving-relatedcriminaloffensesorafelonyinthe10yearspriortorequestingrestoration.Thelawmaintainedtherequirementthatthelicenseberevokedforatleast10yearsbeforeapetitiontorestorecanbesubmitted.

Florida(HB7125)requiredeachclerkofcourttoestablishaDriverLicenseReinstatementDaysprogramforreinstatingsuspendeddriver’slicensesduetocertainoffenses,includingdrivingwithaninvalidorsuspendedlicense,failuretopayfinesandfees,andfailuretoappearincourtforatrafficviolation.Programsmustrunforoneormoredaysannuallyandthebillencouragesclerkstoscheduleatleastoneeventonaweekendorforweekdaysafter5p.m.Theclerkofcourtmayincludeanyinterestedcommunityorganizationasaparticipant,includingtheDMV.Habitualoffendersandotheroffensesareexcludedfromtheprogram,includingDUI,traffic-relatedfelonies,andfailuretofulfillacourt-orderedchildsupportobligation,orrequireddrivingtraining,driverimprovementcourse,oralcoholorsubstanceabuseeducationorevaluationprogram.Participantsmustpaythefullreinstatementfeesbutmayhaveotherfeesandcostsnotorderedbythecourtwaived.ProgramadministratorsarerequiredtoreportthecostandsuccessoftheprogramtotheFloridaClerksoftheCourtOperationsCorporation.

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Speeding and Speed Limits In2018,9,378deaths,or26%,ofallmotorvehiclefatalitiesoccurredinspeed-relatedcrashes.AccordingtoNHTSA,speedingwasafactorin26%ofmotorvehiclefatalitiesin2017andtotalspeedingrelatedfatalitiesdecreasedby5.6%(9,717comparedto10,291in2016).Speedinghasbeenimplicatedinmorethan25%ofcrashdeathseveryyearsince2008,accordingtoNHTSA .

NHTSAconsidersacrashtobespeeding-relatedifthedriverwaschargedwithaspeeding-relatedoffenseorifapoliceofficerindicatedthatracing,drivingtoofastforconditionsorexceedingthepostedspeedlimitwasacontributingfactorinthecrash.AAA’s2018TrafficSafetyCultureIndexfoundastrikingacceptanceofspeedinginpractice.Ofsurveyeddrivers,54%indicatedthatspeedingonafreewayisdangerous,and64%indicatedtheythinkspeedingonaresidentialstreetisdangerous.However,almosthalfofthedriverswhoweresurveyedsaidtheyhadexceededthespeedlimitonafreewayby15mphinthepastmonth,and40%reportedexceedingthespeedlimitby10mphonaresidentialstreet.

Youngdriversaremorelikelytobeinvolvedinspeeding-relatedcrashesthandriversinotheragegroups.NHTSAspeedingstatisticsshowthatin2017,theagegroupswiththehighestpercentageofspeedersinvolvedinfatalcrasheswereall15-to20-year-oldsand21-to24-year-oldmaledrivers,witharateof31%forbothgroups.

AnIIHSstudyontheimpactofincreasedspeedlimitsfoundthatbetween1993and2017,anincreaseof5mphinthemaximumstatespeedlimitledtoan8%increaseinfatalitiesoninterstatesandfreewaysanda2.8%increaseonotherroads.Thisresultedinabout37,000moretrafficfatalitiesthantherewouldhavebeenhadmaximumspeedlimitsremainedthesame.In2017,thereweremorethan1,900additionaltrafficfatalitiesduetoincreasedspeedlimits,accordingtoIIHS .

Michiganenactedalawin2017thatraisedspeedlimitsfrom65to75mphon614milesofruralfreewaysandfrom55to65mphonatleast900milesofotherhighwaysinthestate.Whenselectingthestretchesofroadsonwhichtoraisespeedlimits,trafficsafetyexpertsidentifiedfreewaysthatwerealreadyabletoaccommodatespeedsof5mphoverthepostedspeedlimit,andwheremanydriverswerealreadydrivingat75mph,regardlessofthepostedspeedlimit.In2018,thefirstfullyearafterthespeedlimitswereraised,injuriesandfatalitiesfromcrashesincreasedatahigherrateonthefreewayswithraisedspeedlimitsthanonotherroads.However,thestatewillnotevaluatetheimpactoftheincreasedspeedlimitsontrafficsafetyuntilatleastthreeyears’worthofdatahasbeengathered.

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StateshavegainedmorepowertosetmaximumspeedlimitssinceCongress’1995repealofthe55-mphmaximumspeedlimit.Currently,22stateshavemaximumspeedlimitsof70mph,and11stateshavemaximumspeedlimitsof75mphonsomeportionoftheirroadways.Ineightstates,speedlimitsaresetat80mphoncertainsectionsofinterstates.TexasStateHighway130hasaspeedlimitof85mphalonga41-milestretch.

STATE LEGISLATION

In2019,atleast12statesenactedlegislationrelatedtoraisingspeedlimits,loweringspeedlimitsandspeedingingeneral.

Raising Speed LimitsArkansasenactedlegislation(HB1631)thatamendedthemaximumspeedlimitforamotorvehicleoperatedonacontrolled-accesshighway.Itsetthespeedlimitat75mphifthehighwayislocatedoutsideanurbanareaandhasatleastfourlanesthataredividedbyamedianstrip.Themaximumspeedlimitforacommercialmotorvehicleonacontrolled-accesshighwayoutsideanurbanareawithatleastfourlanesdividedbyamedianissetat70mph.ThestatealsorequirestheArkansasDepartmentofTransportationtoinstallsignsgivingnoticeofthemaximumspeedlimitalongthehighways.Further,theStateHighwayCommissioncandecreasethemaximumspeedlimitfrom75mphonacontrolled-accesshighwayafterconductingatrafficstudy.TheArkansasDepartmentofTransportationwasevaluatingtrafficstudiestoidentifythesafestroadsonwhichtoraisethespeedlimitbeforethelegislationwentintoeffectinJuly2020.

Kentuckypassedabill(HB266)addingtwohighways—Interstate165andtheBertT.CombsMountainParkwayExtension—tothelistofhighwaysonwhichthesecretaryoftransportationcanincreasethespeedlimitfrom65to70mph.

Montanaenactedlegislation(HB393)raisingthespeedlimitfortrucksonfederal-aidinterstatehighwaysfrom65to70mphandraisingthespeedlimitfortrucksonanyotherpublichighwayfrom60to65mph.

Oklahomapassedabill(HB1071)thatallowsthespeedlimittoberaisedfrom70to75mphonruralsegmentsofhighways,aslongasatrafficstudydeterminesthattheincreasedspeedissafeandreasonable.ThebillalsopermitstheOklahomaTurnpikeAuthoritytoraisethespeedlimitfrom75to80mphonturnpikes.

Lowering Speed LimitsInthepastdecade,atleastsevenstates—Colorado,Indiana,Massachusetts,NewHampshire,NewYork,OregonandWashington—hadgivenlocalitiessomelevelofincreasedflexibilitytoreduceminimumspeedsonroadwayswithintheirjurisdictions.

Afewmilesperhourcanmakeaworldofadifferenceforavulnerableusersuchasapedestrianorbicyclistwhoisstruckbyavehicle.AAAresearchfrom2011foundthat“theaverageriskofdeathforapedestrianreaches10%atanimpactspeedof23mph,25%at32mph,50%at42mph,75%at50mph,and90%at58mph.”

Earlyin2019,theNationalCommitteeonUniformTrafficControlDevicesmadeasignificantchangeregardingtheabilityofcommunitiesandengineerstodesignroadswithvulnerableusersinmind.ThecommitteevotedtochangetheManualonUniformTrafficControlDevices(MUTCD),whichservesasthechiefmanualfortrafficandtransportationengineerswhendesigningandconstructingroadways,torequireconsiderationofpedestrianandbicycleactivitywhensettingthespeedlimitsforurbanandsuburbanstreets.Thisisasignificantdeparturefromthecurrentmodel,whichleanslargelyonusingthe85thpercentilerule,whichtypicallysetsthespeedlimitatthespeed85percentofmotoristsarenotexceedinginacorridor.Thischangecomesontheheelsofa2017NationalTransportationSafetyBoardreportthatrecommendedmovingawayfromrelyingonthe85thpercentiletosetspeedlimits.

IIHSundertookastudyin2017tocompareaveragespeedsinBoston,whereastatelawallowedthecitytoreducethedefaultspeedlimitto25mphfrom30mph,withProvidence,R.I.,wherethespeedlimitremained30mph.Similarroads,includingamixofarterial,collectorandlocalroads,wereexamined.AccordingtotheIIHSstudy,there“wasa29.3%declineintheoddsofspeedingforvehiclestravelingfasterthan35mph.

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Theoddsofspeedingfellby8.5%forvehiclesgoingfasterthan30mphand2.9%forvehiclesexceeding25mph.”IIHShopestonextstudytheimpactoflowerspeedlimitsoncrashesinBoston.

In2019,eightstates—Hawaii,Michigan,Minnesota,Montana,NewJersey,NewYork,NorthCarolinaandOregon—revisedtheirstructuresforsettingspeedlimitstofocusmoreattentiononvulnerableroadwayusersorgivelocalgovernmentsmoreleewaytosetspeedlimitsincertaincircumstances.

Hawaiipassedlegislation(HB756)directingthestatedepartmentoftransportationoracountytoconsidercertainfactorswhensettingmaximumspeedlimitsonaroad.Theseshouldincludeanengineeringstudy,alongwithconsiderationofroadwaycharacteristics,suchasshoulderconditiongrade,alignment,sightdistanceandlanewidths.Roadsidedevelopmentandenvironmentalfactorsshouldalsobeconsidered,includingnumberandtypesofsideroadaccess,includingsignalizedorunsignalizedintersections;pedestrianactivityandfacilities;parkingpracticesandactivity;typeofbicycleaccommodationsandfacilities;motorvehiclecrashesresultingindeathsorinjuries;andprevailingspeedsasdeterminedbytrafficengineeringmeasurements.

InMichigan,anewlaw(HB4118)amendeditsstatutestoallow,untilJan.1,2024,aspeedlimitof25mphonahighwaysegmentthatispartofthelocalstreetsystemandwithinlandzonedforresidentialuseifapprovedbytheStateTransportationCommission.Additionally,theDepartmentofStatePoliceisrequiredtoperformaspeedstudyonarandomsampleoflocalstreetsdescribedbythisprovisionandsubmitareporttotheHousespeaker,theSenatemajorityleaderandthegovernorbyJan.1,2023.

Minnesota(HouseFile6)allowedcitiestosetspeedlimitsonstreetsundertheirjurisdictionwithoutundergoinganengineeringandtrafficstudy.Acitymustestablish“procedurestosetspeedlimitsbasedonthecity’ssafety,engineering,andtrafficanalysis.”Thelawdoesnotapplytotownroads,countyhighwaysortrunkhighwaysinacity.

TheOregonlegislature(SB558)expandedonabillpassedin2011allowingPortlandtoreduceitsspeedlimitby5mphonhighwayswithinitsjurisdiction.Itextendedthisprovisiontoothercities,providedtheyarenotarterialhighways,arelocatedinaresidentialdistrictandpropersignageisposted.

Montanalegislation(HB440)expandedthestate’sabilitytoestablishspecialspeedzones.Previously,suchzoneshadtobelessthan50milesinlength,butthenewlawallowsspecialspeedzonesonhighwaycorridorswithincreasedcrashfrequencyorfatalcrashes.ThebillalsoauthorizesMontanatoemployvariablespeedlimitsandlowerthespeedlimitintheeventofavehicleemergency,adverseweatherconditionsoranotherhighwaysafetyfactor.Thetemporaryspecialreducedspeedlimittakeseffectoncefixedorvariablesignsarepostedandremainsineffectuntilsuchsignsareremoved.

Additionally,Montanaamended(HB190)itsprocesstoallowgreaterflexibilityforcountycommissionerstosetschoolzonespeedlimits,providedthelimitisnolowerthan15mph.Texas(HB3871)alsoreviseditsprocessforsettingspeedlimitsinschoolzonesin2019.Thebillauthorizedacountytodeclarealowerspeedlimitofnotlessthan20mphonacountyroadthatislocatedwithin500feetofaschoolorinstitutionofhighereducation,ifapprovedbythegoverningbodyofthemunicipalitywheretheroadislocated.Further,theTexasTransportationCommission,onrequestofthegoverningbodyofaschoolorinstitutionofhighereducation,shallholdapublichearingatleastonceeachcalendaryeartoconsiderspeedlimitsonhighwaysinthestatehighwaysystemthatarenearschoolsorinstitutionsofhighereducation.Attherequestofagoverningbody,afterthepublichearing,theapplicableagencymustconductanengineeringandtrafficinvestigationfortheroadthatisthesubjectoftherequest.

Somestatesempoweredcertainprescribedcommunitiestoreducespeedlimitsorloweredspeedlimitsonspecificcorridors.Forexample,NewJerseypassedalaw(SB1484)reducingthespeedlimitfrom40mphto25mphontheportionsofRoute130thataredirectlyadjacenttotwoschools,and35mphontheportionsapproachingthenewlyreducedspeedlimitzone.Thefineforspeedinginthiscorridorwasraisedtotriplethetypicalfineforspeeding.NewYork(AB5806)addedthetownofRiverheadtothelistoflocalgovernmentstowhichthestatedepartmentoftransportationmustdeferwhenitcomestorequestsforspeedlimitchangesontownhighways.NorthCarolina(HB368)providedthatavehiclemaynotbeoperatedinexcessof25mphintheTownofBermudaRun.

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NATIONAL CONFERENCE OF STATE LEGISLATURES iv

Vision Zero State Policies “VisionZero,”whichisessentiallythegoaltoreducetrafficdeathstozero,wasfirstimplementedinSwedeninthe1990s.ThephraseandphilosophyhasbeenadoptedbymanyAmericancitiesandgovernmentsbutgiventhelargeamountoftrafficdeathsintheU.S.,reachingzerodeathsisamuchmoredifficultproposition.

AccordingtotheVisionZeroNetwork,VisionZero“recognizesthatpeoplewillsometimesmakemistakes,sotheroadsystemandrelatedpoliciesshouldbedesignedtoensurethoseinevitablemistakesdonotresultinsevereinjuriesorfatalities.Thismeansthatsystemdesignersandpolicymakersareexpectedtoimprovetheroadwayenvironment,policies(suchasspeedmanagement),andotherrelatedsystemstolessentheseverityofcrashes.”VisonZeroalsocallsformorerobustcollaborationamongstakeholders,suchastrafficplannersandengineers,policymakersandpublichealthprofessionals.Essentially,VisionZerocallsforasystemicshiftinhowcommunitiesaddresstrafficsafetyandastrongerfocusoninfrastructuretocreatesaferenvironmentsforallroadwayusers.

Thusfar,VisonZerohasbeenmoreofafactoratthemunicipallevelintheU.S.However,Washingtonstatedidadopta“TargetZero”initiativein2000,withagoalofeliminatingtrafficdeathsby2030.MinnesotahasaTowardZeroDeathsinitiative.

HawaiiandMarylandenactedlawsin2019thatreferencedVisionZero.

Maryland(HB885)createdaVisionZeroprogramwithintheMarylandDepartmentofTransportationwithagoalofzerovehicle-relateddeathsorseriousinjuriesonroadwaysby2030.ThisaddsstatutoryauthorityandfurtherdirectiontoapreviouslyestablishedTowardZeroDeathsprogramwithintheMarylandMotorVehicleAdministration’sHighwaySafetyOffice,whichisasubagencyoftheMarylandDOT.MDOTmustdesignateacoordinatortooverseetheVisionZeroprogramandcollaboratewithrelevantstateandlocalagencies.Thelegislationrequiresanumberofactions,including:• Identifyinglaws,policiesandregulationsthathindertheimplementationofvisionzero.• Proposingchangestolawstoallowforinnovativeengineeringandtrafficcalming.• Creatingavisionzerowebsite.• Collectingandpublishingmotorvehiclecollisiondata.• Workingwithresearchorganizationstodevelopbestpractices.• Investingmoreresourcesintoconstructionneedsforhigh-accidentintersections

androadwaysections.• Connectingwithotherstatesandcommunitiesthathaveimplementedvisionzero

programs.• Reviewingexistingtrafficsafetyprogramstodeterminetheireffectiveness.• Prioritizingresourcestocommunitiesmostaffectedbymotorvehiclecollisions.• Proactivelyengagingcommunitymemberstoaddresstrafficsafetyconcerns.• Developingalong-termplanforthedevelopmentofvisionzero.

MDOTmustsubmitanannualreportonthestatusofVisonZerotothegovernorandMarylandGeneralAssembly.

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NATIONAL CONFERENCE OF STATE LEGISLATURES iv

Aggressive Drivers Runningredlights,speeding,weavingthroughtrafficorillegallydrivingontheshoulderarealldangerousbehaviorsthatexhibitaggressivedriving.NHTSAdefinesaggressivedrivingasoperatingamotorvehicle“inamannerthatendangersorislikelytoendangerpersonsorproperty.”Itnotesthattherearealargenumberanddiversityofpossiblecausesforaggressivedrivingthatincludeincreasedtrafficcongestion,increasedcommutingdistances,driverswhohavetoomuchtodoandare“runninglate,”anddisregardforothersandthelaw.

AAA’s2018TrafficSafetyCultureIndexdemonstratesthatmanydriverscondoneriskydrivingbehaviors.Forexample,nearly23%ofdriversofallages,and33%ofdriversages25to39,somewhatorcompletelyapprovedofdriving15mphoverthespeedlimitonafreeway,andalmost50%ofallrespondentsadmittedhavingdonesoatleastonceinthelast30days.About40%reportedexceedingspeedlimitsby10mphonaresidentialstreetatlastonceinthelast30days,and10.9%somewhatorcompletelyapprovedofsuchbehavior.Only54.2%ofrespondentsconsidereddriving15mphoverthespeedlimitonafreewayasveryorextremelydangerous.Driving10mphoverthespeedlimitonaresidentialstreetwasperceivedasveryorextremelydangerousby64%ofdriversofallages,andabout55%ofdriversages25to39.

STATE LEGISLATION

Aggressivedrivingcontinuestobeatopicoflegislationaroundthecountry.Moststateshavesomesortofreckless,negligent,carelessoraggressivedrivinglaw.

Threestates—Maine,NevadaandUtah—enactedlegislationrelatedtoaggressivedrivingin2019.

TheHawaiiLegislature(HB757)directedthestateDOTandcountytransportationdepartmentsto“adoptaVisionZeropolicythatseekstopreventandultimatelyeliminatealltrafficfatalitiesthroughacombinationofengineering,enforcement,educationandemergencyresponsestrategiesthatfocusonequity.”

Simultaneously,thestatehighwaysafetycouncilmustcollaboratewithcountytrafficorhighwaysafetycouncilsanddevelopanactionplantoreducetrafficfatalitiestozero.Theactionplanmustinclude:

• Policiesonhowtoreducespeedsonstateandcountyroads.• Engineeringrecommendationsonhowtoincreasevehicular,pedestrianandbicycle

safety.• Data-drivenenforcementrecommendationsonhowtoreducespeedingandoperating

avehiclewhileundertheinfluenceofanintoxicant.• Additionalstepsthatcanbetakentoeliminatevehicular,pedestrianandbicyclefatalities.• Animplementationplanandestablishmentofmeasurestotracksuccess.

ThestateDOTmustsubmitareportoffindingsbasedonthestatehighwaysafetycouncil’seffortstothelegislaturebythebeginningofthe2020legislativesession.Additionally,thestatehighwaysafetycouncilmustsubmitaninterimprogressreporttothelegislaturenolaterthantwodayspriortotheconveningoftheregularsessionof2020.Thecouncilmustthensubmitafinalreportwithanactionplanandproposedlegislationbeforetheendofthe2021legislativesession.

NATIONAL CONFERENCE OF STATE LEGISLATURES 38

Maine(HB815)amendeditsminimumsuspensionfornegligentoperationlawanddecreasedthedriver’slicensesuspensionperiodfromthreeyearstooneforoffenderswhonegligentlyoperatedamotorvehicleandcausedthedeathofanotherperson.

Nevada(AB403)amendeditsprovisionsgoverningrecklessdrivingtoclarifythatsuchprovisionsapplynotonlytomotorvehiclesbeingoperatedonahighwaybutalsotovehiclesoperatedon“premisestowhichthepublichasaccess.”Theseinclude,amongothers,parkinglots,parkinggaragesandaccessroads.Nevada(AB201)alsooutlawedusingavehicletoperformtricks,stuntsorothermaneuversonapublichighway.Thenewlawprovidesthatdrivingavehicleinanunauthorizedtrickdrivingdisplayconstitutesagrossmisdemeanor.

Utah(HB431)passedlegislationtoaddoffensesthatareeligibleforexpungementbutexplicitlyexcludedallrecklessdrivingoffenses.

Washington,D.C.(Bill544),introducedtheRecklessDriverAccountabilityActof2019,authorizingtheimpoundmentofmotorvehiclesformotoristswiththreeticketsforspeedingbymorethan25mphoverthelimit,orfiveticketsforspeedingorrunningaredlight,unlesstheownertakesaremedialcourse.Thecoursewouldfeaturesmallgroupsessionsemphasizingharmfuldrivingbehavior.Thenewlawwouldapplytoallvehiclesthatarephysicallylocatedinthedistrict,independentlyofwheretheyareregistered.ThisinitiativewasmodeledafterasimilarprogramadoptedinNewYorkCityinFebruary2020.Thecourseisbasedonacurrentrestorativejusticemodel,whichwasshowntoreducerearrestratesfordangerousdrivingbyapproximately40%.NewYorkiscurrentlytheonlyjurisdictioninthecountrywithsuchaprogram.Itisexpectedthatabout5,000vehicles(1%ofregisteredvehiclesinNewYorkCity)willaccumulatethenumberofinfractionsneededtotriggerthesafetycourserequirement.

NewYork(AB3087)haspendinglegislationthatwouldexpandthedefinitionofrecklessdrivingtoincludeoffensesinvolvingtheuseofaportableelectronicdevicewhiledriving.SouthCarolina(HB4793)isdebatinganinitiativethatwouldcreatetheoffenseofrecklessdrivingresultingingreatbodilyinjuryandestablishingapenaltyforsuchanoffense.

Automated Enforcement Automatedenforcementtechnology,suchasred-lightandspeedcameras,allowslocallawenforcementagenciestoenforcetrafficlawsremotelybydetectingmotoristswhoviolatetrafficregulations.Red-lightcamerasarelinkedtotrafficsignalsandmonitorthegreen,yellowandredphasesoftrafficlights.Whenadriverentersanintersectionafterthesignalhasturnedred,sensorstriggerthecamerastotaketwophotographs—oneofthevehicleenteringtheintersectionwhilethelightisredandoneshowingthevehicletravelingthroughtheintersectiononaredlight.Speedcamerasuseradar,laserordetectorsembeddedintheroadsurfacetomeasureavehicle’sspeedataparticularspot.Ifavehicleistravelingfasterthanthepermittedspeed,thespeedcamerawillrecordthedate,time,locationandspeedofthevehicle,inadditiontotakingaphotoofthevehicle.Thephotosofthelicenseplatesareusedtoidentifyvehicleowners,whowillreceiveaticketiftheyexceededthespeedlimit,typicallybymorethan10or11milesperhour,accordingtotheIIHS.

AccordingtotheAAAFoundationforTrafficSafety,morethantwopeopleintheU.S.arekilledeachdaybydriversrunningredlights.In2017,939peoplewerekilledincrashesinvolvingred-lightrunning,a28%increasesince2012.Further,datashowsthat28%ofcrashdeathsthatoccuratsignalizedintersectionsarearesultofdriversrunningredlights.Likered-lightrunning,speedinghasalargeimpactonthenumberandseverityofcrashesthatoccur.NHTSAdatashowsthatin2017,morethan9,000deathsoccurredinspeed-relatedcrashes.Highspeedsmakeacrashmorelikelyduetothelongerdistanceittakesforthedrivertostoporslowdown,andtheincreasedriskthatthedriverwilllosecontrolofthevehiclewhileattemptinganevasivesteeringmaneuver.

NATIONAL CONFERENCE OF STATE LEGISLATURES 39

Whilestudiesontheeffectivenessofautomatedenforcementhaveshownsomevariedresults,theygenerallyshowthatautomatedenforcementtechnologyhasapositiveimpactontrafficsafety.AnIIHSstudyfoundthatred-lightcamerasreducedthefatalred-lightrunningcrashrateoflargecitiesby21%andtherateofalltypesoffatalcrashesatsignalizedintersectionsby14%.Further,a2016IIHSreportshowedthatremovingred-lightcamerasfromintersectionscostslives.Toreachthisconclusion,researcherscomparedtrendsinannualfatalcrashesin14citiesthathadendedtheircameraprogramswiththosein29citiesinthesameregionsthatcontinuedtheirprograms.Theyfoundthatinthe14citieswherecameraswereremoved,fatalred-light-runningcrashesatallsignaledintersectionsincreasedby30%.Thestudyestimatedthatifthesecitieshadnotendedtheirred-lightcameraprograms,63deathswouldhavebeenprevented.

Studiesalsoshowpositivesafetyimpactsfromspeedcameras.IIHSconductedastudyofMontgomeryCounty,Maryland,wherespeedcameraswereimplementedin2007.Thecameraswereplacedinschoolzonesandonresidentialstreetswithspeedlimitsof35mphorless.Thestudyfoundthatduringtheprogram’sfirstyear,theproportionofdriverstravelingatleast10mphoverthespeedlimithaddeclinedonthestreetsthathadspeedcameras.Further,IIHSfoundthatin2014,thelikelihoodofadriverexceedingthespeedlimitbymorethan10mphonroadswithcamerasdecreasedby62%.

Despitestudiesthatgenerallyshowapositiveimpactontrafficsafety,red-lightandspeedcamerasremaincontroversial.Contrastingresultsfromstudiescanenhanceskepticismofautomatedenforcement,particularlywithregardtohowred-lightcameraprogramsareadministeredandwhichintersectionsarechosen.

Whilesomemunicipalitiescontinuetoaddautomatedenforcementprograms,therecenttrendhasbeentowardfewergovernmentsusingred-lightandspeedcameraprograms.AccordingtoIIHS,342communitieshadred-lightcamerasasofJanuary2020,comparedto430communitiesin2016.Speedcamerasarelessprevalentthanred-lightcameras,althoughtherehasbeenaslightuptickintheiruseduringthepastfewyears,with151communitiesusingthemasofJanuary2020.Onecommonlycitedreasonforturningoffcamerasiscommunityoppositiontoperceivedrevenue-generatingtools.Tothisend,trafficsafetygroupshavedevelopedstrategiesforred-lightcameraprogramsthatemphasizetransparencyandimplementationbasedonsafetyconcerns.

Currently,cityandlocalgovernmentsin22statesuseredlightcameras.TheyareAlabama,Arizona,California,Colorado,Delaware,Florida,Georgia,Illinois,Iowa,Louisiana,Maryland,Missouri,NewYork,NorthCarolina,Ohio,Oregon,Pennsylvania,RhodeIsland,Tennessee,Texas,Virginia,WashingtonandtheDistrictofColumbia.Notably,whileTexasenactedabillbanningtheuseofred-lightcamerasin2019,somecommunitieswithexistingcontractswillbepermittedtocontinueusingcamerasforthetimebeing.

Communitiesin16 states—Alabama,Arizona,Colorado,Georgia,Illinois,Iowa,Louisiana,Maryland,NewMexico,NewYork,Ohio,Oregon,Pennsylvania,RhodeIsland,TennesseeandWashington—andtheDistrictofColumbiacurrentlyhavespeedcameraprogramsinplace.Georgiaauthorizedspeedcamerasinschoolzonesbeginningin2018.Pennsylvaniaenactedlegislationin2018(SB172)establishingafive-yearpilotprogramforautomatedspeedenforcementcamerasinworkzonesonthePennsylvaniaTurnpike,interstatesandfederal-aidhighwaysinthestate.TheprogrambeganinMarch2020,followinga60-daypre-enforcementperiod.Driversgoing11mphoverthepostedspeedlimitinworkzoneenforcementareaswhenhighwayworkersarepresentwillbegivenawarningaftertheirfirstoffense,fined$75aftertheirsecondoffenseandfined$150followingtheirthirdoffense.

Therearesomestatesthatexplicitlyallowred-lightcamerasand/orspeedcamerasbylaw,butcurrentlydonothavecommunitiesusingautomatedenforcementtechnologies.Forexample,Arkansasstatelawallowsspeedcamerasinschoolzonesandatrailroadcrossings,butnospeedcamerasarecurrentlyinuse.InNevada,bothred-lightcamerasandspeedcamerasarepermittedstatewide,butstatelawrequiresthatautomatedenforcementequipmentbeheldbylawenforcementofficialsorinstalledinlawenforcementvehicles.InUtah,communitiesarenotusingspeedcameras,despitethefactthatthestateallowstheminschoolzonesandareaswithspeedlimitsof30mphorless.InIowaandMissouri,redlightandspeedcamerasareallowedbycityordinancebutnotbystatelaw.InMissouri,severalmunicipalitieshadautomated

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enforcementprogramsinplaceuntilAugust2015,whentheMissouriSupremeCourtissuedtwoopinionsfindingthatred-lightandspeedcameraswereunconstitutional.Currently,onlythecityofHannibal,Mo.,employsred-lightcamerasandtherearenolongeranyspeedcamerasinthestate.

Somestates,ontheotherhand,havelawsexplicitlyprohibitingautomatedenforcement.Maine,Mississippi,NewHampshire,SouthCarolina,TexasandWestVirginiaprohibitbothred-lightcamerasandspeedcameras.MontanaandSouthDakotaprohibitred-lightcameras,andNewJerseyandWisconsindonotallowspeedcameras.

STATE LEGISLATION

Atleastfourstates—Hawaii,Maryland,NewYorkandTexas—enactednotablebillsin2019relatedtoautomatedenforcement.

Twostatesenactedlegislationconcerningautomatedenforcementpilotanddemonstrationprograms.

Hawaiienactedlegislation(SB663)establishingared-lightrunningcommitteetodeveloppolicyrecommendationsforred-lightcamerapilotprogramsinthecountiesofHonolulu,Maui,KauaiandHawaii.Thebillstatesthatthenumberofdriversviolatingtrafficsafetylaws,particularlybyrunningredlights,hasbecomeintolerableandisadangertothelivesofmotoristsandpedestrians.Thebillthenspecificallycitesred-lightcamerasasareliableandeffectivewaytoidentifyanddeterdriversfromrunningredlights.

NewYorkpassedabill(A951)establishingaspeedcamerademonstrationprograminschoolzonesinthecityofBuffalo.Driverstravelingataspeedofmorethan10mphabovethepostedspeedlimitinaschoolzonewillbefined,withfinescappedat$50foreachviolation.

Twostatesenactedlegislationexpandingautomatedenforcementinspecificcountiesorcities.

Marylandenactedabill(HB187)thatincreasesthenumberofspeedmonitoringsystemsthatcanbeimplementedonStateRoute210inPrinceGeorge’sCounty,expandingona2018law(HB175)thatallowedPrinceGeorge’sCountytoplaceonespeedcameraataspecificintersection.

Further,NewYorkenactedlegislationexpandingspeedcamerasinschoolzonesinNewYorkCity.

In2018,140schoolzonespeedcamerasinNewYorkCitywereshutdownduetotheexpirationofa2013lawauthorizingtheiruse.DatafromtheNewYorkCityDepartmentofTransportationshowsthatbetween2014and2017,thecamerasreducedspeedingduringschoolhoursby63%andinjuriesby17%.InAugust2018,GovernorAndrewCuomosignedlegislationextendingthe2013law,allowingthespeedcamerastocontinuetobeused.

In2019,theNewYorkLegislaturepassedabill(AB6449)toexpandthespeedcameraprogramandimplementcamerasaroundeverypublicelementary,middleandhighschoolinNewYorkCity.Thelawalsoallowsthecamerastooperateforlongerhourseachday.Theauthorizationtousecamerasin750schoolzoneswillmakeNewYorkCity’sspeedcameraprogramthemostrobustintheU.S.Theprogram’sexpansionwillbeimplementedoverthenextthreeyears.

Giventhecontroversialnatureofred-lightandspeedcameraprograms,theautomatedenforcementlandscapeislikelytocontinueshiftingthroughthenextyearandbeyond.

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NATIONAL CONFERENCE OF STATE LEGISLATURES iv

Texas Bans Red-Light Cameras Ratherthanexpandingautomatedenforcement,Texasbannedtheuseofred-lightcamerasinthestate.

Since2007,Texaslawmakershaveconsideredbanningred-lightcameras.GovernorGregAbbottsignedHB1631intolawinAugust2019,citingconcernsthatthecamerasposeconstitutionalissuesbecauseindividualsarenotabletoconfronttheiraccuserincourt.

ThoughthelawwentintoeffectonJune2,notallcitiesinthestatehavediscontinuedtheirred-lightcameraprograms.WhilecitieslikeArlingtonandRichardsonhavestoppedusingred-lightcameras,somecommunitieswithcameraprogramsinplacewillcontinueoperatingthecamerasuntiltheircurrentcontractscometoanend.ThecityofDallas,forexample,signeda10-yearcontractin2017withanoptiontooptoutofthecontractaftersevenyears.Whileopponentsofred-lightcamerasinTexasquestiontheirconstitutionalityandeffectiveness,citieswithprogramsinoperationcontinuetochampionred-lightcamerasasatooltoimprovepublicsafety.

Motorcyclist Safety AccordingtoNHTSA,therewere4,985motorcyclistskilledincrashesin2018,comparedto5,172fatalitiesin2017.Duringtheperiodbetween2008to2017,motorcyclistfatalitiespeakedin2008at5,312,thengenerallydecreased,andpeakedagainin2016with5,337motorcyclistskilled.Duringthatsameperiod,fatalitiesamongmotorcycleridersages40andolderincreasedby2%,andtheaverageageofmotorcycleriderskilledincrashesrosefrom40to42.AccordingtoNHTSA,motorcyclesmadeup3%ofallregisteredvehiclesintheUnitedStatesin2017andaccountedforonly0.6%ofallvehiclemilestraveled.

In2017,motorcyclistfatalitiesmadeup14%ofalltrafficfatalities.Ofmotorcyclesinvolvedinfatalcrashes,23%collidedwithfixedobjects,while16%wereinvolvedinfatalcrasheswithpassengercars,13%withlighttrucksand4%withlargetrucks.Oftwo-vehiclefatalcrashesinvolvingamotorcycleandanothermovingvehicle,42%involvedtheothervehiclesturningleftwhilethemotorcyclewasgoingstraight,passingorovertakingothervehicles.

STATE LEGISLATION

In2019,atleast11statesenactedlegislationconcerningmotorcyclists,generallyfocusedonlicensingandeducation,motorcycleoperationandautocycles.

Motorcyclist Licensing and EducationAtleastfourstatesenactedbillsin2019relatedtomotorcyclistlicensingandeducation.

Kansaspassedlegislation(SB17)thatnowrequiresindividualstohaveamotorcyclelicensewhenoperatingamotorcyclethatisregisteredunderatemporarypermit.NorthDakotapassedtwobillsrelatedtomotorcyclelicensingandregistration.Theyrequiremotorcycleregistrationstoberenewedeveryyear(HB1093)andrevisemotorcycleoperator’slicenserequirements(SB2194)toprohibitanyoneyoungerthan16withapermitorlicensefromoperatingamotorcyclewithanengineinexcessof510cubiccentimetersdisplacementratherthan250centimeters.

NATIONAL CONFERENCE OF STATE LEGISLATURES 42

Delawareadoptedaresolution(SCR3)tocontinuetheMotorcycleRiderEducationAdvisoryCommittee,whichmonitorstheMotorcycleRiderEducationProgram.Washingtonenactedlegislation(HB1116)thatupdatesthestate’smotorcyclesafetyprogrambycreatingamorecomprehensivemotorcyclistendorsementtest.

Motorcycle Operation In2019,Utahpassedabill(HB149)toallowmotorcycliststoengageinlanefiltering,makingUtahthesecondstateafterCaliforniatoenactlanesplittingorlanefilteringlegislation.Thedifferencebetweenlanefilteringandlanesplittingisgenerallyunderstoodasthespeedofthetrafficthatthemotorcyclemovesbetween.AccordingtotheAmericanMotorcyclistAssociation,lanesplittingasitisdoneinCaliforniaistypicallypracticedatnomorethan15mphfasterthancongestedtraffic,aslongastrafficisgoing50mphorless,assuggestedbyaUniversityofCalifornia,Berkeleystudyonlanesplitting . Lanefilteringreferstothesituationwhereamotorcyclepassesothervehiclesthatarestoppedinthesamedirectionoftravelinthesamelane.Utah’slegislationallowsmotorcyclestoengageinlanefilteringonroadswithspeedlimitsof45mphorless,onlywhentrafficisstopped,whenthemotorcycleistravelinglessthan15mphandwhenthemovementcanbemadesafely.Thebillhasasunsetprovision,sothesectionspermittinglanefilteringwillberepealedonJuly1,2022unlessfurtherlegislativeactionistaken.

Oregonalsopassedabillregardingmotorcycleoperation(SB810),addingmotorcycleoperatorstothedefinitionofavulnerableuserofapublicway.UnderOregon’sCarelessandRecklessDrivinglaw(O.R.S.§811.135),apersonwhocommitsacarelessdrivingoffensethatcontributestotheseriousinjuryordeathofavulnerableuserofapublicwayissubjecttoenhancedpenalties.

Autocycles In2019,atleastfivestatesenactedlegislationtodefineoramendexistingregulationsonautocycles.

Arizonaenactedabill(SB1258)clarifyingthataclassMlicenseisnotnecessaryforoperatinganautocycleormotorcyclethathasatleastthreewheels,three-pointsafetybelt,bucketorbenchseats,andisfullyenclosedorusesarollcageframe.Montanapassedabill(SB158)thatdefinesanautocycleasathree-wheeledmotorcyclethatisequippedwithsafetybelts,rollbarsorrollhoops,asteeringwheel,andseatingthatdoesnotrequiretheoperatortostraddleorsitastrideit.Thestatealsoclarifiedthatamotorcycleendorsementisnotnecessaryfortheoperationofanautocycle.NewJerseynowrequires(SB2720)autocyclestobeinsuredbypersonalinjuryprotection(PIP)coveragethatcoversonlypedestrians,ratherthanthemoreexpansivePIPcoverage.NorthCarolinapassedabill(HB211)thatupdatesthestate’sautocycledefinitionaspartofthehelmetexemption,specifyingthatthemotorcyclehelmetrequirementdoesn’tapplytoanoperatorofanautocyclethathascompletelyenclosedseatingorisequippedwitharollbarorrollcage.Wisconsinenactedlegislation(SB86)relatedtotheregistrationandoperationofautocycles.

School Bus SafetyEveryschoolday,morethan25millionchildrenclimbinto485,000busesaroundthecountrytotakethemtoandfromschoolandrelatedactivities,accordingtotheNationalAssociationforPupilTransportation.Whileschoolbusesarestatisticallythesafestwaytotransportschoolchildren,61childrenwhowereridingaschoolbusdiedincrashesbetween2008and2017,accordingtoNHTSA.Another264school-agechildren(18andyounger)diedinschool-transportation-relatedcrashesduringthatperiod,eitherasoccupantsofothervehiclesoronfootorbike.Atotalof1,241peopleofallagesdiedinschool-transportation-relatedcrashesbetween2008and2017.

Severalrecenttragic,high-profileschoolbuscrasheshavesparkeddebateatstatehousesregardingschoolbussafety.AfatalcrashinMay2018inNewJerseyledtochangesinschoolbusseatbeltandschoolbusdriverrequirements(seepage44),whileacrashthattookthelivesofthreeschoolchildreninIndianaspurredanumberofsubstantivechangesregardingschoolbuspassingandtheplacementofschoolbusstops(seepage49).

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TheNationalTransportationSafetyBoard(NTSB)releasedareportin2019analyzingafatalschoolbuscrashinIowa.Thecrashresultedfromthedriverbackingintotheditchandthebusstartingonfire.NTSBdeterminedtheprobablecausewasthedriver’sfailuretocontrolthebusandtheschooldistrict’sfailuretoprovideadequateoversightbyallowingadriverwithaknownphysicalimpairmentthatlimitedhisabilitytoperformemergencydutiestooperateaschoolbus.NTSBissuedonerecommendationspecificallytostates:“Reviseyourschoolbusdriverrequirementssothatalldriversmustpassaphysicalperformancetestonhiringandatleastannually,andalsowheneveradriver’sphysicalconditionchangesinamannerthatcouldaffecthisorherabilitytophysicallyperformschoolbusdriverduties,includinghelpingpassengersevacuateabusinanemergency.”AccordingtoNTSBandresearchbyNCSL,onlysixstatesclearlyrequiresuchphysicalperformancetestsforschoolbusdrivers.

Inimportantnewsthatcouldhavesignificantimpactsonschoolbusdriversafetyandoversightinthenearfuture,theFederalMotorCarrierSafetyAdministration(FMCSA)Drug&AlcoholClearinghouse is nowoperational.Theclearinghouseisacentralizeddatabasethatemployersandentitiessuchasschooldistrictsandstudenttransportationproviderswillusetoreportdrugandalcoholprogramviolations.Schooltransportationproviderswillalsobeabletoquerywhetherschoolbusdriverapplicantshaveviolationsthatwoulddisqualifythemfromdriving.Statedriverlicensingagencieswillberequiredtousetheclearinghousebeginningin2023.

STATE LEGISLATION

Schoolbussafetywasverymuchonthemindoflawmakersin2019,followinganumberoffatalschoolbuscrashesinthepastfewyears.Statesenactedseveralsubstantivechangestotheirlawsconcerningschoolbussafety,particularlyinIndiana,MaineandNewJersey.Over20statesenactedmorethan40billsrelatedtoschoolbussafetyduringthe2019legislativesessions.Theyaddressedschoolbusdrivers,seatbeltsonschoolbuses,illegallypassingschoolbuses,andtheuseofstop-armcamerasandschoolbusequipment.

School Bus DriversThelegislaturesinConnecticut,GeorgiaandNewHampshiretookstepsin2019tohelpensureschoolbusdriversorapplicantsarescreenedfordisqualifyingviolations.

Connecticut(SB924)reviseditsprocessforensuringcomplianceforschoolbusdriverswithdrivingviolations.TheConnecticutDMVperiodicallyprovidesschooldistrictsandschoolbuscarrierswithareportlistingthenamesanddriver’slicensenumbersofeachdriverwhoselicenseorendorsementhasbeensuspendedorrevoked.Connecticutnowrequiresanycarrierofschoolchildreninthestatetoregisterwiththecommissionerofmotorvehicles,andthecarrier’sassignedemployeemustreviewtheDMVreportat

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leasttwiceamonth.Ifanyschoolbusdriver’slicenseorendorsementtooperateastudenttransportationvehiclehasbeenwithdrawn,suspendedorrevoked,thecarriermustimmediatelyprohibitthatemployeefromoperatingsuchavehicle.Thebillalsoalignsminimumphysicalrequirementsforschoolbusdriverswiththefederalphysicalqualificationstandardsforcommercialdrivers.

TheGeorgialegislature(HB459)alsorefineditsprocessforidentifyingandsuspendingschoolbusdriverswithdrivingviolationsbycreatingaregistryofallpersonsinthestatedrivingorapplyingtodriveaschoolbus.Eachlocalboardofeducationmustsubmitthefullnameanddriver’slicensenumberofeveryschoolbusdrivertotheDepartmentofPublicSafetybeforeauthorizinghimorhertooperateaschoolbus.Thelocalboardsofeducationmustprovideanupdatedlisttothedepartmenttwicewithinacalendaryear,andthedepartmentmustmaintainadatabasewithdrivernamesandlicenseinformation.Thedepartmentmustverifythestatusofeachperson’sdriver’slicenseandnotifytheappropriatelocalboardofeducationofanydriverwhoselicensehasexpiredorbeencanceled,suspendedorrevoked.Iftheboardlearnsaschoolbusoperator’slicensehasexpiredorbeensuspendedorrevoked,theboardmustsuspendorrevoketheoperator’sauthorizationtodriveaschoolbus.Aschoolbusdrivermustnotifythelocalboardofeducationifhisorherdriver’slicensehasexpiredorbeensuspendedorrevoked.Driversmayrequestanewauthorizationtodriveaschoolbusuponthereinstatementoftheirdriver’slicenseordrivingprivileges.

NewHampshire(SB62)establishedacommitteetostudy“criminalbackgroundchecksforschoolbusdriversandtheestablishmentofastatewidecertificationprogramforschoolbusdrivers.”

NorthDakotaandVirginiaaddedtrainingrequirementsforschoolbusdriversin2019.Virginia(SB1713)nowrequiresdriverstocompleteatrainingprogramdevelopedbytheBoardofEducation,includingsafetyprotocolsforrespondingtoadverseweatherconditionsandunsafeconditionsduringloadingandunloadingofstudents.Thetrainingrequirementswerepreviouslynotmandatory.

NorthDakotaschoolbusdriversmustnow(HB1385)completetheNationalSafetyCouncil’sdefensivedrivingcoursewithinthefirstyearofemploymentandthenatleastonceeveryfiveyears.AnothernewNorthDakotalaw(HB1369)clarifiesthattheschoolboardmustpayforaninitialexaminationandsubsequentrecertificationexaminationstodetermineifaschoolbusdrivermeetsphysicalandmedicalrequirements.Furtherexaminationsthatareneededmayhavetobepaidforbythedriversortheirinsurance.

Illinoisenactedlegislation(HB2121)stipulatingthatanapplicantforaschoolbusdriverpermitmustnothavebeenconvictedofaClassAmisdemeanorundertheCannabisControlActinthepast20years.

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Garden State Tightens Oversight of School Bus Drivers

TheGardenStatetooksignificantstepstoincreaseschoolbussafetyfollowingaschoolbuscrashinMayof2018thattookthelifeofonestudentandoneteacherinParamus,N.J.TheNewJerseyLegislatureenactednumerousschoolbusbillslatein2018andearlyin2019,withaparticularfocusonincreasingoversightofandrequirementsforschoolbusdrivers.

Thelegislature(AB4224)directedthecommissionerofeducationtopartnerwithanumberofotherstateagencies,includingofficeswithintheDepartmentofLawandPublicSafetyandtheMotorVehicleCommission,aswellastheOfficeofHomelandSecurityandPreparedness,tostudyschoolbussafety.Thestudymustinvestigate:• Thesafetyofschoolbuspassengersinvolvedinemergencysituations,suchashead-on,

rear-endandside-impactcollisionsandsituationswheretheschoolbusmayrollover.• Schoolbussafetytechnologiessuchasspeedrestrictors,automaticbraking,electronic

stabilitycontrolandeventdatarecorders.• Age,physicalfitnessrequirementsandexperiencequalificationsforschoolbusdrivers.

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Thestudymustthenevaluatestatutoryandregulatoryrequirementsrelatingtooversightofschoolbusoperations,includingmaintenanceofvehicles,schoolbusdriverqualifications,andauditsofschooldistrictsandcontractors.Thestudymustbesubmittedtothelegislatureandthegovernor.

NewJersey(AB4031/SB1773)alsoenactedarequirementthatanyentityoperatingaschoolbusmustdisplayatelephonenumber,websiteaddressorotheridentifyinginformationacrosstherearoftheschoolbustoenablethepublictoreportabusdriver’smisconduct.Thecommissionerofeducationmustcreateregulationsfortheappropriatedesigneetoaddressandrespondtoacomplaintofschoolbusdrivermisconduct,theappropriateactionsthatmaybetakentorespondtoaschoolbusdriver’smisconductcomplaintandthetimeperiodduringwhichtheymayrespond.

NewJersey(AB4346/SB2848)alsoaddressedmedicalandphysicalfitnessrequirementsforschoolbusdrivers.Themedicalexammustincludehearingandvisualacuitytests,butthepreviousrequirementforacognitivetestwasexcised.Furthermore,adriverolderthan70mustannuallyfurnishsatisfactoryevidenceofcontinuingphysicalfitnessintheformofamedicalexaminationtotheemployerandthenforreviewbythecommission.Driversolderthan75mustdothesame,buteverysixmonths.

NewJersey(AB4345/SB2853)alsoprovidedflexibilityforschoolbusdriverstoparticipateinasafetyeducationprogramtwiceperyear,ratherthanatthebeginningandendoftheschoolyear.

ThelegislatureinNewJerseyalsosoughttoensureschoolbusdriverswithsuspendedlicensesorwhohavelosttheirschoolbusendorsementnolongeroperateaschoolbus.Thestatemustsuspendadriver’sschoolbusendorsementfor90daysifthepersonisconvictedofthreeormoremotorvehiclemovingviolationsinthreeyearsoraccumulatessixormoremotorvehiclepenaltypointswhileoperatingacommercialmotorvehicleornoncommercialmotorvehicle.Newlegislation(AB4447/SB2914)requirestheNewJerseyMotorVehicleCommissiontonotifythecommissionerofeducationifaschoolbusdriver’sschoolbusendorsementhasbeensuspendedwithinonebusinessdayofthesuspension.Alongsimilarlines,anotherbill(AB4344/SB2850)nowrequiresapupiltransportationprovidertoverifytothedepartmentofeducationthataschoolbusdriverwithasuspendedorrevokedlicensenolongeroperatesaschoolbuswithinonebusinessdayofbeingnotified.

Seat Belts on School Buses Eightstates—Arkansas,California,Florida,Louisiana,Nevada,NewJersey,NewYorkandTexas—havelawsrequiringtheinstallationofseatbeltsonschoolbuses.Arkansas,California,Nevada,NewJerseyandTexasspecificallyrequirelap/shoulderbelts.Arkansas,LouisianaandTexas’laws,however,aresubjecttoappropriationsorapprovalordenialbylocaljurisdictions.

Additionally,Iowa’sBoardofEducationapprovedaneducationdepartmentrulein2019requiringthree-pointlap-shoulderbeltstobeinstalledinallnewbuses,effectiveOctober2019.

Nootherstatescreatednewschoolbusseatbeltsrequirementsin2019,althoughthelegislaturesinatleast13states—Connecticut,Illinois,Indiana,Maryland,Massachusetts,Minnesota,Mississippi,NewMexico,NewYork,RhodeIsland,SouthCarolina,UtahandVirginia—consideredseatbeltrequirementsduringtheir2019sessions.

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Illegally Passing School Buses and Stop-Arm CamerasInstancesofmotoristsillegallypassingastoppedschoolbusaremorecommonthanonemightimagine.TheNationalAssociationofStateDirectorsofPupilTransportationServicesconductsanannualsurveytogaugehowoftenthisdangerousdrivingactiontakesplace.Forthe2019survey,schoolbusdriversfrom39statesparticipatedandrecordedover95,000driversillegallypassingaschoolbusinasingleday.

Inresponsetothistrafficsafetydanger,22statesexplicitlyallowlocalgovernmentsorschooldistrictstousecamerasmountedonschoolbusstoparmstocaptureimagesofandissueticketsfordriverswhoillegallypassstoppedschoolbuses.TheyareAlabama,Arkansas,Connecticut,Georgia,Idaho,Illinois,Indiana,Maine,Maryland,Mississippi,NewYork,NorthCarolina,Oklahoma,Pennsylvania,RhodeIsland,SouthCarolina,Tennessee,Utah,Virginia,Washington,WestVirginiaandWyoming.Some,butnotall,statesrequirealawenforcementofficertoreviewthevideoevidencebeforeissuingacitation.OklahomaandTennesseeinstitutedthisrequirementin2019.

Notably,NTSB,aspartofaninvestigationintoaschoolbuscrashthattookthelivesofthreeIndianaschoolchildrenin2018,recommendedthe28stateswithoutschoolbusstop-armcameralawsadoptsuchlaws(seepage49formoreonIndiana’s2019schoolbussafetyactions).

Sevenstates—Idaho,Indiana,Maine,NewYork,Oklahoma,TennesseeandWestVirginia—enactedlawsin2019allowingstop-armcamerastobeused.

NewYork’slawwentintosignificantdetailregardingtheparametersofoperatingastop-armcameraprogram,preservingprivacyandtheprocessforcitingviolators,whiletheothersixstateswentintolessdetailorsimplyauthorizedtheuseofsuchcameras.

TheNewYorkLegislature(AB4950)authorizedschooldistrictstoenterintoagreementswithmunicipalitiestoinstallandusestationaryormobileschoolbusphotoviolationmonitoringsystems.

Source: NCSL, 2019

School Bus Safety Laws

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Allows stop-arm camerasRequires seat belts on large school busesBoth laws in placeNone

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Thebillgoesintoconsiderabledetailregardingprivacyprotections,fineamountsanddisseminationoffinerevenue,reportingtothestateandlocalgovernmentsandotherconsiderations.

Municipalitiesareresponsibleforallcoststoadministertheprogram.Theviolationsareonlymonetaryviolationsandmaynotcountagainstadriver’soperatingrecordnorforinsurancepurposes.Thefineamountsare$250forafirstviolationand$275or$300forasecondorthirdviolation,respectively,within18months.Thelocalgovernmentmayaddanadditionalpenaltyofnomorethan$25perviolation.Finerevenuemustberemittedtothestatecomptroller.Thecomptrollerwillthenpay90%ofthefineamounttothecountyinwhichtheviolationoccurred,and10%tothecity,townorvillagewheretheviolationoccurred.Schooldistrictsmustreportthecoststoadministertheschoolbusphotoviolationmonitoringsystemsannually,andwillthenbereimbursedthatamountbythelocalgovernmentwithwhichtheyhaveanagreement.

Withregardtoprivacyprotections,localitiesmustadoptandenforcemeasurestoprotectanindividual’sidentityandidentifyinginformation.Thisincludes,totheextentpractical,producingphotographsthatdonotidentifythedriver,passengers,otherindividualsorcontentsofthevehicle.Photographsandotherrecordedimagesanddataproducedbyschoolbusphotoviolationmonitoringsystemsmustbedestroyed90daysaftertheviolationdateoruponfinaldisposition.Vehiclelicenseplateinformationandotherinformationandimagesmustnotbeusedordisseminatedforreasonsotherthandeterminingifamotoristillegallypassedaschoolbus,exceptifrequiredbycourtorderorasotherwiserequiredbylaw.Thedeterminationwhetheraviolationoccurredmustbemadebyatechnicianemployedbythelocalgovernmentwheretheviolationtookplace.

NewYorkwastheonlystatein2019torequirewarningsignsforschoolbuscameras.Signagemustbepostedonroadsenteringalocalitywithaschoolbusphotoviolationmonitoringsystem,alertingdriversthatcamerasarebeingusedtoenforcerestrictionsonvehiclesillegallypassingaschoolbus.Lastly,anylocalgovernmentwithaschoolbuscameraprogrammustreporttothegovernorandlegislatureannually.

Idaho’snewlaw(SB1131)raisedfinesforillegallypassingschoolbuses,andintheprocess,declaredfinesofmorethan$100mustgotoanewlycreatedschoolbuscamerafund.Suchfundscanonlybeusedforinstallingcamerasonschoolbusestoenforceillegallyovertakingandpassingschoolbuses.

Indiana(SB2)authorizedschooldistrictstopurchase,installandoperatestop-armcamerastorecordvehiclesthatunlawfullypassastoppedschoolbus.ThenewlawreferencesIndiana’sadministrativecode,whichdetailsspecificationsforsuchcameras.Schooldistrictsmay,withtheapprovalofthegoverningbody,petitionthecountycounciloratownshipboardtoreceivereimbursementforthecameras.

Foreachviolationwhereamotoristpassesaschoolbusstoppedonaroadway,thecourtmayassessa“safeschools”feeofatleast$200andnomorethan$1,000,with75%ofthefeedepositedinthestateuserfeefund.Theother25%willberemittedtomunicipalgovernmentsorcounties,dependingonwherethefeewascollected.

Intermsofdrivingprivileges,adriver’slicensemaybesuspendedfor90days,andforasecondoffensewithinoneyear,foroneyear.ThebillalsoincreasesthepenaltyfromaClassBmisdemeanortoaClassAmisdemeanor.Ifamotoristpassesaschoolbusanditleadstoaninjury,thepenaltyisnowaLevel6felonyratherthanaClassAmisdemeanor.Forasituationthatleadstodeath,itisnowaLevel5felony.

InMaine,thelegislature(SP53)authorizedthestateandmunicipalitiestoinstallschoolbuscamerastorecordvehiclesthatunlawfullypassthemwhiletheyarestopped.Imageandaudiorecordingsareconfidentialandcanonlybereleasedtolawenforcement,defendantsandtheprosecution.Thestateoramunicipalitymaynotretainarecordedimageoraudiofromaschoolbuscameraformorethan30days.

Oklahoma’snewlaw(HB1926)authorizedschooldistrictstoinstallandoperateavideomonitoringsysteminoronthedistrict’sschoolbusesorbusstop-arms,orcontractwithaprivatevendortodoso.Todetermineifaviolationoccurred,theschooldistrictmustforwardtherecordedimageorvideoforreviewtothelawenforcementagencywithjurisdiction.Ifthelawenforcementagencyfindsthereissufficientevidencetoidentifythevehicleandthedriver,thatevidencemustbesubmittedtothedistrictattorney’sofficeforprosecution.Violatorswerepreviouslysubjecttoafineofatleast$100.Thebilladdedanadditionalspecial

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assessmentof$100,with75%depositedintheCamerasforSchoolBusStopsRevolvingFund.TheStateBoardofEducationwillthenawardoneormoregrantsannuallyfromthatfund,ifmoneyisavailable,topublicschooldistrictsfortheinstallationofcameraequipmentonbuses.Theother25%fromtheassessmentgoestothelawenforcementagencywheretheviolationoccurred.

Tennessee(HB268/SB205)authorizedlocaleducationagencies(LEAs)toinstallcamerasonschoolbusestorecordvehiclesthatunlawfullypassastoppedschoolbus,orcontractwithaprivatevendortodoso.AnLEAthatinstallsschoolbuscamerasmustenterintoamemorandumofunderstandingwithlocallawenforcementforthepreservationofevidencefromacamera.Onlylawenforcementofficersareauthorizedtoreviewevidencefromacameratodeterminewhetheraviolationoccurred.Thefineis$50foracamera-basedviolation,andfinerevenueisremittedtotheLEA.

WestVirginia(SB238)directedcountyboardsofeducationtoinstallschoolbuscamerastodetectillegalpassingofschoolbusesonallschoolbusespurchasedafterJuly1,2019.

Afewstates—Arkansas,Idaho,Illinois,WestVirginiaandWyoming—revisedtheirpenaltiesforillegallypassingastoppedschoolbus.Somestatelawsprescribedifferentfinesandpenaltiesforaviolationcapturedbyaschoolbuscameraasopposedtoalawenforcementofficer.Onecommoncomponentistonotassesspointsagainstadriver’slicenseforaviolationcapturedbyacamera.

Arkansas(HB1006)increasedpenaltiesforpassingastoppedschoolbus.Violatorsnowmustpayaminimumof$500,ratherthan$250,andamaximumofnomorethan$2,500,upfrom$1,000.

Idahoincreaseditsfinesforillegallypassingaschoolbus,withtheminimumfineforafirstoffensenow$100ratherthan$200,andtheceilingof$500forafirstoffenseremoved.Forasecondoffense,theminimumfinewassetat$400withinfiveyearsofaprioroffenseandnolessthan$600forathirdoffensewithinfiveyearsoftwoprioroffenses.Also,finesover$100gointoanewschoolbuscamerafund.

Illinois(HB1873)increasedtheminimumfineforafirstoffensefrom$150to$300andfrom$500to$1,000forasecondoffense.

TheWestVirginiaLegislatureincreased(SB238)theminimummonetarypenaltiesforillegallypassingaschoolbusfrom$250to$500forafirstviolation,$500to$1,000forasecondviolationand$1,000to$2,000forathirdviolation.Thebillalsocreatedminimumdriver’slicensesuspensionperiodsforsuchaviolation.Afirstoffensetriggersasuspensionperiodof60days,whileasecondoffensewillleadtoa180-daysuspension,andathirdorsubsequentoffensewouldcarryalicensesuspensionofoneyear.Additionally,thebillcreatedfinesforadriverwhoillegallypassesaschoolbusandcausesseriousphysicalinjuryordeath.Adriverthatcausesseriousbodilyinjuryisguiltyofafelony,anduponconviction,shallbeconfinedinastatecorrectionalfacilityforatleastoneyearandnomorethanthreeyearsandfinednolessthan$2,000normorethan$5,000.Anydriverwhocausesdeathisguiltyofafelonyandmustserveatleastoneyearandnomorethan10yearsinastatecorrectionalfacilityandbefinedatleast$5,000andnomorethan$10,000.

Wyoming(SB80)createdafineof$195foracamera-detectedviolationoftherequirementtostopforastoppedschoolbusandalsoclarifiedthatacamera-detectedviolationisnotconsideredamovingviolationforthepurposeofsuspendingadriver’slicense,norconsideredaconviction.

Fivestates—Georgia,Maryland,Mississippi,VirginiaandWyoming—refinedaspectsoftheirschoolbuspassinglawsin2019.

Georgia(SB25)clarifiedthatmotoristsdonotneedtostopforastoppedschoolbusonroadwaysseparatedbyagrassmedian,unpavedareaorphysicalbarrier.Maryland(SB464)kepttheincreasedcivilpenaltyof$500forfailingtostopforastoppedschoolbus.Thepenaltywasscheduledtorevertto$250.

Mississippi(HB677)clarifiedthatanyperson,ratherthanjustaschoolbusdriverorlawenforcementofficial,maywitnesstheillegalpassingofastoppedschoolbus,anditshallbearebuttableinferencethatthepersoninwhosenamethevehicleisregisteredcommittedtheviolation.Thebillalsoallowsaschool

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busdrivertostoponastreetblockingthetwooutermostrightlanes,regardlessofthenumberoflanes,whenpreventingbeingovertakenwhilereceivingordischargingschoolchildren.Foratwo-lanestreetorhighway,thisallowsaschoolbusdrivertoblockbothlanes.

Virginia(HB2344)nowrequiresthestate’sDMVtoreleasecertainvehicleownerdatatoaprivatevendoroperatingaschoolbusvideo-monitoringsystem.Thatdatacanonlyincludethevehicleowner’snameandaddressandthevehicleinformation,whichincludesalldescriptivevehicledataandtitleandregistrationdata.Thebilllimitshowsuchdatacanbeusedandstoredandprovidesthatanypersonwhounlawfullydisclosessuchdatabesubjecttoacivilpenaltyof$1,000.Thebillalsoamendedtheschoolbuspassinglawtoclarifymotoristsmustremainstoppeduntilthebusisputinmotion.

Wyoming,whichenactedalawin2014mandatingallschoolbusesinthestatebeequippedwithschoolbuscameras,hasencounteredissueswithprosecutingcamera-basedviolations.Its2019legislation(SB80)addedlanguageregardingprivacyandtheprocesstodetermineifanindividualwasdrivingthevehicleinquestion.Thebillclarifiesrecordingsorimagesfromaschoolbuscameraarenotpublicrecords.Recordingsorimagesmaybeenteredintoevidenceforan“Illegallypassingaschoolbus”prosecutionandmaybediscoverableforothercriminalactions.Suchrecordingsorimagesmustbedestroyedwithinoneyearofthedatetherecordingwasmade.Itshallbeadefensetoenforcementofthefinethattheregisteredownerofthevehicleeitherdidnotprovideconsenttothepersonwhowasoperatingthevehicleatthetimeoftheviolationortransferredownershipofthevehicletoanewownerpriortotheobservedviolation.

Lastly,theNewYorkLegislatureenactedabill(SB2960)torequireschoolbussafetyawarenesseducationasaprerequisiteforobtainingadriver’slicense.Acurriculummustbedevelopedthatincludes,amongothers,anoverviewoftrafficlawsgoverningovertakingandpassingschoolbuses.

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Indiana Focuses on Safety at School Bus StopsAfatalcrashonanautumnmorningin2018tookthelivesofthreenorthernIndianachildrenandseverelyinjuredanotherchildwhiletheywerecrossingaruralhighwaytoboardtheirschoolbus.Theschoolbusstopwasacrossfromamobilehomepark,andstudentshadtocrossatwo-laneroadwitha55mphspeedlimittoreachthestop.Theschoolbuswasstoppedwithitsredwarninglightsandstoparmactivatedwhenthedriverofapickuptruckillegallypassedtheschoolbusandcollidedwiththefourchildrencrossingtheroad.ThistragiccrashpromptedtheIndianalegislaturetoenactalaw(SB2)withseveralcomponentsregardingsafeschoolbuspassing,andsafepracticesandlocationsforschoolbusstops.

Thebillauthorizedschooldistrictstoinstallschoolbusstop-armcameras(seepage46).Additionally,thebillmadeanumberofchangesandnewrequirementstoincreasethesafetyofschoolbusroutesandstops,including:

• TheschoolbusdrivermaynotloadorunloadastudentonaU.S.routeorstaterouteatalocationthatrequiresthestudenttocrossaroadwayunlessnoothersafealternativesareavailable.Ifnosafealternativeexists,thesuperintendentmustpresenttheschoolbusroutetothegoverningbodyforapproval.

• WhenaschoolbusisoperatedonastreetorhighwayotherthanaU.S.routeorstateroute,thedrivershallloadandunloadastudentasclosetotheright-handcurboredgeoftheroadwayaspractical.

• Eachschoolcorporation,charterschoolandaccreditednonpublicschoolthatprovidestransportationforstudentsmustreviewtheschool’sbusroutesandschoolbussafetypoliciestoimprovethesafetyforstudentsandadults.

• Thestateschoolbuscommittee,inconsultationwiththedepartmentofeducation,mustdevelopandpostonthedepartment’swebsiteschoolbussafetyguidelinesor

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School Bus EquipmentLouisiana(HB156)clarifiedthatcharterschoolsaresubjecttoregulationsconcerningschoolbusspecificationandinspectionrequirements,operationalprocedures,andschoolbusoperatorandbusattendantpre-employmentscreeningandtrainingrequirements.

Maineenactedlegislation(HB20)requiringschoolbuseswithamodelyearof2021ornewertobeequippedwithaschoolbuscrossingarminstalledatthefrontbumper.Acrossingarmisadevicemountedonthefrontbumperofaschoolbusthat,whenactivated,extendsinfrontofthebus,enablingstudentswhocrosstheroadwayinfrontofthebustomaintainasafedistancefromit.

Sucharmsaremeanttoensureschoolchildrendon’twalkdirectlyinfrontoftheschoolbuswhencrossingthestreettoorfromthebusstopandtoprovidebettersightlinesforapproachingmotoristsandschoolchildrenaswellastheschoolbusdriver.BasedonNCSLresearch,atleast26statesappeartorequireschoolbusestohavecrossingcontrolarmseitherthroughstatuteoradministrativecode.TheNationalCongressonSchoolTransportationrecommends,butdoesnotrequire,theuseofcrossingcontrolarms.

Maryland(SB215/HB276)definedoperationalagelimitsforschoolbuses,addingAlleganyandGarretttothelistofcountiesthatareallowedtooperateschoolvehiclesforupto15,ratherthan12,years.

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bestpractices.Thesemustincludeprocedurestoensurethatstudentsdonotenteraroadwayuntilapproachingtraffichascometoacompletestop.

• Thedepartmentofeducation,inconsultationwiththedepartmentoftransportation,mustincludeinformationonhowanindividualorschoolmaypetitiontoreducemaximumspeedlimitstoensurethatstudentsaresafelyloadedontooroffofaschoolbusonthedepartment’swebsite.

Thebillalsorequirestheexamforalearner’spermitordriver’slicensetoincludeaquestionregardingdriver’spassingaschoolbus.

InApril2020,NTSBissuedasummaryofthecrashandnumberofrecommendations,includingthatstatesauthorizeschoolbusstop-armcameras,whichIndianahadalreadydonewithSB2.NTSBalsomaderecommendationsthatbuiltonsomeoftheprovisionsinSB2,includingrecommendingthattheIndianaDepartmentofEducationsupplementitstrainingprogramforschooltransportationdirectorswithamoduleonhowtoassessthesafetyandrisksofschoolbusroutesandstops.

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Bicyclist and Pedestrian SafetyAccordingtoNHTSA,therewere6,283pedestrianskilledintrafficcrashesin2018.Thiswasa3.4%increasefrom6,075pedestrianfatalitiesin2017,thehighestnumberofpedestriantrafficdeathssince1990.Almostone-fifthofpedestrianfatalitiesinvolvedhit-and-rundrivers.Pedestriandeathsaccountedfor17%ofalltrafficdeathsin2017.

ThelateststatisticsfromNHTSAshowtherewere857bicyclistdeathsin2018,anincreaseof6.3%from2017.Bicyclistsmadeup2.3%ofalltrafficfatalitiesin2018.Thenumberofbicyclisttrafficdeathswasthehighestsince1990.Notably,26%ofbicyclistswhodiedwerefoundtohaveBAClevelsabove.01,and20%hadaBACabove.08.DriversinvolvedinfatalcrashesinvolvingabicyclisthadaBACof.08orhigherin15%ofcrashes.Theaverageageofbicyclistskilledisnow47years,upfrom41in2009.Theoverwhelmingmajorityofbicyclistfatalities(86%)in2018weremales.

Overall,pedestriansandbicyclistsmadeupnearly20%oftrafficfatalities,asignificantjumpfrom14%offatalitiesin2009.

STATE LEGISLATION

2019wasanactiveyearforlegislationconcerningbicyclistandpedestriansafety,inparticularbicyclingbills.Legislaturesenactedbillsconcerningbicycleoperation,safebicyclepassing,vulnerableroaduserlaws,pedestriansafety,electricbicycles,andmiscellaneousbicyclistandpedestriansafetyprovisions.

Bicycle OperationFourstates—California,Oklahoma,RhodeIslandandWashington—revisedtheirlawsregardingdifferingaspectsoflegallyoperatingabicyclein2019.Twostates,ArkansasandOregon,joinedthesmallgroupofstatesthatallowbicycliststotreatstopsignsasyieldsignsin2019.

California(AB1266)clarifiedthatabicyclistmaytravelstraightthrougharight-orleft-turn-onlylanewhenanofficialtrafficcontroldeviceindicatesthatthemovementispermitted.

Oklahoma(HB2454)becamethelateststatetoallowbicyclistsandmotorcycliststoproceedthrougharedtrafficcontrollight,butonlyifthatisduetothesignalfailingtodetectthemotorcycleorbicyclebecauseofitssizeorweight.TheOregonlegislature(HB2682)clarifiedthat“abicyclelaneexistsinanintersectionifthebicyclelaneismarkedonoppositesidesoftheintersectioninthesamedirectionoftravel.”

RhodeIsland(SB782/HB5507)addedlanguageallowingabicyclistfacingagreenbicyclesignaltoproceedstraightthroughorturnrightorleftunlessasignprohibitseitherturnwhileyieldingtherightofwayasneeded.

Washington(SB5723)reviseditslawregardingbicycleoperation,specificallyregardinginstancesinwhichabicyclistmust“rideasneartotherightsideoftherightthroughlane.”Exceptionstothisrequirementincludewhenabicyclistismakingaleftturnwhenthereisarightturnlanepresent,butthebicyclistdoesnotintendtoturnright.Italsomakesanexception“whenreasonablynecessarytoavoidunsafeconditions

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including,butnotlimitedto,fixedormovingobjects,parkedormovingvehicles,bicyclists,pedestrians,animals,andsurfacehazards.”Additionally,whenabicyclistisonaroadwaywithonlyonelaneanditiswideenoughforabicyclistandavehicletotravelsafelysidebyside,thebicyclistmustridefarenoughtotherighttofacilitatethemovementofanovertakingvehicle.Exceptionsincludewhenotherconditionsmakeitunsafetodosoorthebicyclistismakingorpreparingtomakeaturn.

ArkansasandOregonbothpassed“stopasyield”lawsin2019,whichallowbicycliststotreatstopsignsasyieldsignsinspecifiedinstances.Theselawsaresometimesknownasthe“IdahoStop”duetoIdaho’senactmentofthefirstsuchstatelawin1982.SuchlawsalsoexistinamorelimitedforminColoradoandDelaware.

Arkansas’newlaw(SB388)allowsbicycliststoproceedthroughastopsignafteryielding,onlystoppingifrequiredtoavoidanimmediatehazard.Foraredtrafficcontrollight,bicyclistsmayproceedthrougharedlightwithcaution,afterfirststoppingandyieldingtheright-of-waytoalloncomingtrafficthatconstitutesanimmediatehazard.

Afteranumberofpastattemptsatpassingastopasyieldlaw,theOregonlegislatureenactedsuchalaw(SB998)in2019.Thenewlawstipulatesthatabicyclistapproachinganintersectionwithastopsignorflashingredsignalmaymakeanyofthefollowingmovementswithoutstoppingifthepersonslowsthebicycletoasafespeed:proceedthroughtheintersection,makearightorleftturnontoatwo-waystreet,ormakearightorleftturnontoaone-waystreetinthedirectionoftrafficontheone-waystreet.Bicyclistsmustyieldtherightofwaytotrafficlawfullywithintheintersectionorapproachingsocloseastoconstituteanimmediatehazardandyieldtopedestriansinthecrosswalk.Oregon’sbilldoesnotincludelanguageallowingbicycliststoproceedthrougharedtrafficlight.

Safe Bicycle PassingAbicyclesafetypolicythathasgainedsignificantinterestandactivityinstatelegislaturesis3-feetorsafebicyclepassinglaws.Theselawsseektoensurethat,whenpassingbicycles,motorvehiclesallowadequatespacetoavoidsideswipingbicyclistsorcausingabicyclisttoovercorrecttoavoidavehicle.

Twostates,OklahomaandWashington,enactedbillsin2019regardingsafelypassingbicyclists.Bothincluded3-feetpassingrequirements,bringingthetotalnumberofstateswithsuchprovisionsto33states.

Oklahomaenactedabill(HB2453)requiringamotorvehiclepassingabicyclisttomaintainasafedistanceofnotlessthan3feetuntilthemotorvehicleissafelypastthebicycle.Ifthereisonlyonetrafficlaneproceedinginthesamedirection,amotoristmustnotovertakeorpassabicycleatadistanceoflessthan3feetbetweenanypartofthemotorvehicleandanypartofthebicycleoritsoperator,andshallnotmoveagaintotherightsideofthehighwayuntilthevehicleissafelyclearofthebicycle.Amotoristmaydrivetotheleftofthecenteroftheroadway,includinginano-passingzone,topassabicycleonlyiftheroadwayisunobstructedenoughtopermitthedrivertopassthebicyclesafelyandavoidoncomingtraffic.

Ifthereismorethanonelanefortrafficinthesamedirection,amotoristpassingacyclistmustmovethevehicletothelanetotheimmediateleftifthelaneisavailableandmovingintothelaneisreasonablysafe.Themotoristmaynotmovebackintothetravellaneuntilthevehicleissafelyclearofthebicycle.

Aviolationofthepassingprovisionisamisdemeanorpunishablebyafineofnotmorethan$100.Asecondorsubsequentconvictionispunishablebyimprisonmentinacountyjailfornomorethan30days,orafineofbetween$150and$500,orbothafineandimprisonment.Amotoristwhopassestoocloselyandcausesacrashthatinjuresanotherpersonissubjecttoamisdemeanorconvictionpunishablebyimprisonmentincountyjailfornomorethanthreemonths,afineofnotmorethan$1,000,orboth.Foraviolationthatleadstogreatbodilyinjurytoanotherperson,thedrivercanbefoundguiltyofamisdemeanorpunishablebycountyjailimprisonmentforuptosixmonths,afineofnomorethan$3,000orboth.

Washington’snewlaw(SB5723)requiresmotoristspassingabicyclist,pedestrianorotherstravelingonaroadwaywithonlyonetrafficlaneinthedirectionoftraveltoreducetheirspeed.Thespeedmustbereducedtosafelypassatadistanceofatleast3feetwherepracticaltoclearlyavoidcontact.Whenthereisinsufficientroomtotheleftoftheindividual,thedrivermust,beforepassinganduntilsafelyclearoftheindividual,move

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Vulnerable Road Users Anumberofstateshavecreatedlawstodefine“vulnerableroadwayusers.”Thesedefinitionstypicallyincludepedestrians,bicyclists,motorcyclists,firstresponders,peopleinwheelchairsandothersusingroadswithouttheprotectionofavehicle.Theselawsoftenincludeenhancedpenaltiesformotoristswhoinjureorkillavulnerableuserinacrash.

Colorado(SB175)definedavulnerableusertoincludepedestrians,bicyclists,motorcyclists,firstresponders,apersonridingananimal,farmvehicles,peopleonaskateboardorrollerskatesorothersuchdevices,apersoninawheelchair,andotherprescribedroadusers.

Thebillalsocreatedstandardpenaltiesforamotoristresponsibleforacrashleadingtoseriousbodilyinjurytoavulnerableuser.AmotoristfoundguiltyofthisClass1traffic

Source: NCSL, 2020

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2-feet passing law/4 feet in a no-pass zone

3-feet mininum passing distance

4-feet minimum passing distance

General “safe distance” passing requirements

No specific law for passing a bicyclist

3-feet when below 35 mph/6-feet for above 35 mph

Require motorists to completely change lanes when passing a bicyclist if there is more than one lane proceeding in the same direction.

DE

AS GU MP VI PR

State Statutes Regarding Motorists Passing Bicyclists

completelyintothelaneoftrafficmovingintheoppositedirectionwhenitissafetodoso.Onaroadwaywithtwolanesormoreoftrafficmovinginthedirectionoftravel,themotoristmust,beforepassinganduntilsafelyclearoftheindividual,movecompletelyintotheotherlanewhenitissafetodoso.Amotoristfoundguiltyofviolatingthisprovisionmustpayanon-waivablefineinadditiontothetypicalpenalties.

Asnoted,thelawsinbothOklahomaandWashingtonalsonowrequiremotoriststocompletelychangelaneswhenpassingabicyclistifthereismorethanonelaneproceedinginthesamedirection.Delaware,KentuckyandNevadaaretheonlyotherstateswithsuchrequirementsintheirlaws.

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Pedestrian Safety TheHawaiiLegislature(SB98)madeanimportantadditionandclarificationtoitsstatuteregardingyieldingtopedestriansincrosswalks.Itstatesthata“pedestrianislawfullywithinanintersectionoradjacentcrosswalkwhenanypartorextensionofthepedestrian,includinganypartofthepedestrian'sbody,wheelchair,cane,crutch,orbicycle,isbeyondthecurbortheedgesofthetraversableroadwayormovesontotheroadwaywithinanintersectionorcrosswalk."

Hawaii(SB693)alsoaddedlanguageregardingwhenapedestrianshouldenteracrosswalkwithacountdowntimer.Ifthepedestriancontrolsignalisequippedwithacountdowntimer,apedestrianmaynot“starttocrosstheroadwayinthedirectionofsuchsignaloncethecountdownbegins,butanypedestrianwhohaspartiallycompletedthepedestrian'scrossingwhenthecountdownbeginsshallcompletethecrossingtoasidewalkorsafetyislandbeforethecountdowntimerends.”

TheMarylandlegislature(SB460)increasedthemaximumfine—from$500to$1,000—forinstanceswhenadrivercontributestoacrashbyfailingtocometoastopwhenapedestrianisinacrosswalk.Thefinealsoincreasesforovertakingandpassingastoppedvehiclethatisallowingapedestriantocrosstheroadwayatamarkedorunmarkedcrosswalkatanintersection.ThebillalsoestablishedthePedestrianSafetyFundanddedicatesallfinerevenuefromsuchviolationstothefund.Fundsmayonlybeusedtoenhancethesafetyandqualityofpedestrianandbicycletransportation.Eligibleeffortsincludeprovidingeducationalprogrammingthatraisesawarenessoftheresponsibilitytofollowtherulesoftheroad;makingphysicaldesignchangesthatcalmtraffic,minimizeconflictamongstreetusers,andprotectbicyclists,motoristsandpedestrians;andincreasingenforcementofrulesoftheroad,suchasusingradarspeeddisplaysigns.

TheNewHampshireGeneralCourt(HB428)removedtheprohibitiononrightturnsbyvehicleswhileasteadyorflashingwalksignalisdisplayed.

TheTexasLegislatureaddedlanguage(HB2775)prohibitingapedestrianfrommovinginfrontof,under,betweenorthroughthecarsofamovingorstationarytrainoccupyinganypartofarailroadgradecrossing.

Virginia(HB1648)addedtheTownofAshlandtothelistofmunicipalitiesthatmaypassanordinanceallowingtheinstallationofhighwaysignsatmarkedcrosswalks.Thesignsrequireoperatorsofmotorvehiclestoyieldtherightofwaytopedestrianscrossingorattemptingtocrossthehighway.

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misdemeanormustattendadriverimprovementcourseandperformnomorethan320hoursofpublicservice.Themotoristwillhave12pointsassessedagainsthisorherlicense,whichwilltriggeralicensesuspension.

Illinoispassedlegislation(HB2383)requiringmotoristswhocauseaTypeAinjuryinacrashinacrosswalkoraschoolzonecrosswalktohavetheirlicensesuspendedfor12months.ATypeAinjuryincludesseverelybleeding,distortedextremitiesandinjuriesthatrequiretheinjuredpartytobecarriedfromthescene.

TheWashingtonLegislature,aspartofitssafepassinglegislation(SB5723),createdavulnerableroadwayusereducationaccount,withallfinerevenuefrompassingorfollowingvulnerableuserstoocloselydepositedinthataccount.Washingtonhadpreviouslyestablisheda“vulnerableuserofthepublicway”definition.ExpendituresfromtheaccountmaybeusedonlybytheWashingtontrafficsafetycommissiontosupportprogramsdedicatedtoincreasingawarenessbylawenforcementofficers,prosecutorsandjudgesofopportunitiesforenforcingtrafficinfractionsandoffensescommittedagainstvulnerableroadwayusers.Anyremainingfundsmustbededicatedtoincreasingpublicawarenessoftherisksandpenaltiesassociatedwithtrafficinfractionsandoffensescommittedagainstvulnerableroadwayusers.Thebillalsorequiredanadditionalfine,whichmaynotbewaived,forillegallypassingorfollowingtoocloselytoamotorcyclist,mopeddriver,bicyclistandotherusers.

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Electric Bicycles Legislaturescontinuedtodebateandenactlawsdefiningelectricbicycles—alsoknownase-bikes—andtherulesfortheiroperationin2019.Thirteenstates—Georgia(HB454),Hawaii(HB812),Idaho(HB76),Indiana(HB1236),Maine(HB882),Maryland(SB935),NewHampshire(HB148),NewJersey(SB731),Oklahoma(HB1265),SouthDakota(SB187),Texas(HB2188),Wisconsin(AB132)andWyoming(SF81)—enactedbillsrelatedtoe-bikes.Thebillsprimarilyfocusedondefiningandestablishing“three-tiered”e-bikeclassificationsystems,helmetrequirements,agerestrictionsandrestrictionsonwheree-bikesmayoperate.

Electric Bike Definitions and Three-Tiered Classification

In2019,11states—Georgia,Idaho,Indiana,Maine,Maryland,NewHampshire,Oklahoma,SouthDakota,Texas,WisconsinandWyoming—enactedlegislationestablishinga“three-tiered”e-bikeclassificationsystem.

Thetieredclassificationsystemisdesignedtodifferentiatebetweene-bikemodelswithvaryingtopassistedspeedandpoweractivationcapabilities(i.e.,thee-bikemustbepedaledtoactivatethemotor).Forexample,Oklahoma’slanguagedefinesthefollowing:• Class1:E-bikesequippedwithanelectricmotorthatassistsonlywhentherideris

pedalingandceasestoassistoncereachingaspeedof20mph.• Class2:E-bikesequippedwithanelectricmotorthatmaybeusedexclusivelytopropel

bikesandceasestoassistoncereachingaspeedof20mph.• Class3:E-bikesequippedwithanelectricmotorthatassistsonlywhentherideris

pedalingandceasestoassistoncereachingaspeedof28mph.

Onestate—NewJersey—enactedlegislationestablishinga“two-tiered”e-bikeclassificationsystemandmodifiedits“motorizedbicycle”definitionbyaddinglanguageforapedalbicyclehavinganelectricmotorthatpropelsthebicycleinexcessof20mphwithamaximummotor-poweredspeedof28mph.Thiswouldgenerallymeetthecriteriafora“class3”e-bike,butthelawalsospecifiedthatthisdoesnotincludea“low-speede-bike.”Inotherwords,“class3”e-bikesmeetingthecriteriaofa“motorizedbicycle”muststillregisterwiththestateMotorVehicleCommission.Operatorsmustalsobeatleast15yearsold,haveavalidlicenseandinsurancecard,andwearahelmetwhileoperatingthedevice.E-bikesupportersnoteitdoesnotappearpossibletoregistera“class3”e-bikebecausethebikeslackvehicleidentificationnumbers.

Hawaii’slegislationadoptedthefederaldefinitionofan“e-bike”undertitle15oftheU.S.Code,section2085.ThisfederaldefinitionispartoftheConsumerSafetyActand“low-speedelectricbicycles”aredefinedas,“atwo-orthree-wheeledvehiclewithfullyoperablepedalsandanelectricmotoroflessthan750watts,whosemaximumspeedonapavedlevelsurface,whenpoweredsolelybysuchamotorwhileriddenbyanoperatorwhoweighs170pounds,islessthan20mph.”

Helmet Requirements

Sixstates—Georgia,Indiana,Maine,NewHampshire,NewJerseyandSouthDakota—enactedlegislationrequiringe-bikeoperatorsandpassengerstowearbicyclehelmetsiftheydonotmeetminimumagerequirements.

Indianarequiredanye-bikeoperatororpassengeryoungerthan18ona“class3”e-biketowearahelmet.Mainerequiredanye-bikeoperatororpassengeryoungerthan16towearahelmet.NewHampshirerequiredany“class3”e-bikeoperatororpassengeryoungerthan18towearahelmet.SouthDakotarequiredany“class3”e-bikeoperatoryoungerthan

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18—aswellasanypassenger,regardlessofage—towearahelmet.NewJerseyrequiresalle-bikeridersyoungerthan17towearahelmetwhenriding.Georgiarequiredhelmetuseforallridersof“class3”e-bikes.

Age Restrictions

Tenstates’laws—Georgia,Hawaii,Indiana,Maine,Maryland,NewHampshire,Oklahoma,SouthDakota,TexasandWisconsin—includede-bikeagerestrictionsforcertainriders.Minimumageprovisionsonlyapplytothee-bikeoperator,andallstatesallowedindividualsthatdonotmeettheminimumoperatoragetorideasapassengerifitisdesignedtoaccommodatepassengers.

Hawaii(HB812)prohibitede-bikeoperatorsyoungerthan15.Georgia,IndianaandTexasprohibited“class3”e-bikeoperatorsyoungerthan15.Maineprohibited“class2”and“class3”e-bikeoperatorsyoungerthan16.Maryland,NewHampshire,Oklahoma,SouthDakotaandWisconsinprohibited“class3”e-bikeoperatorsyoungerthan16.

Registration and Licensure

Oneoftheprimaryrationalesforstatestoenacte-bikelegislationistodifferentiatee-bikesfromothermotorizeddevices,suchasmopedsandmotorcycles,andexempte-bikeoperatorsfromlicensureandregistrationrequirements.ThenewlawsinGeorgia,Idaho,Indiana,Maine,Maryland,NewHampshire,Oklahoma,SouthDakota,Texas,WisconsinandWyomingallincludesuchlanguage.Forexample,Idaho’sbillspecificallystatesmopedsandmotorcyclesarenote-bikesandexplicitlyexemptse-bikeoperatorsfromlicensure,registrationandtitlingrequirements.

HawaiiandWyomingaddressede-bikeregistrationintheirnewlaws.Hawaiirequirede-bikestoberegisteredandpayaone-timefeeof$30.Ownersofnon-electricbicyclesinHawaiimustregistertheirbikesaswell,butthefeeis$15.Wyoming’slegislationempoweredlocalitiestoenactaregistrationfeeaspartofanylocalordinancesgoverningtheoperation,registrationandlicensureofnon-electricbicyclesande-bikes.

Source: NCSL, 2020

States That Define an Electric Bicycle

NH

ID

MT

WY

MA

VT

NV

ND

SD

NE MO

OH

CO

AZ

VA

PA

OK

IA

AR TN

MI

FL

GA

CT

WV

NY

KS

AL

NC

NJ

MDHI NM

TX

WI

LA

IL

KY

MS

IN

SC

DC

AK

WA

OR

CA UT

MN

DE

RI

ME

Defines e-bike

Defines e-bike and has a three-tier classification systemNo definition

VIAS GU MP PR

NATIONAL CONFERENCE OF STATE LEGISLATURES 57NATIONAL CONFERENCE OF STATE LEGISLATURES iv

Restrictions on Where E-Bikes May Operate

Twelvestates—Georgia,Idaho,Indiana,Maine,Maryland,NewHampshire,NewJersey,Oklahoma,SouthDakota,Texas,WisconsinandWyoming—enactedlegislationestablishingrestrictionsonwheree-bikesmayoperate.Thestatesapprovinglegislationin2019generallyempoweredlocalitiesorstateagencieswithjurisdictiontoregulatewheree-bikesarepermittedtotravel,includingonmultiuseandmultipurposepathsortrails,undercertaincircumstances.Hawaiiwastheonlystatetonotincludelanguageregardingrestrictionsonwheree-bikescanbeoperated.

IdahoandWisconsinallowede-bikesonsidewalks,multiusepathsandsidepathsiftheiroperatorsarenototherwiseprohibitedbylocalordinanceorsignagepostedbyapublicagency.Marylandallowede-bikestooperatewherenon-electricbicyclesarepermittedtotravel,includingbikelanes.NewJerseyempoweredlocalitiesandstateagencieswithjurisdictionoverbikepathstorestrictwheree-bikesmayoperate.Texasempoweredstateagenciesandlocalitieswithjurisdictiontosetspeedlimitsfore-bikesonpathssetasidefortheexclusiveoperationofbikesandotherpathsonwhichbikesmaybeoperated,aswellasprohibite-bikesoperatingonsidewalks.Texas’bill,however,doesnotallowprohibitionsonoperatinganelectricbicycleinanareawhereoperationofanon-electricbicycleispermitted.Wyomingallowedanylocalityorstateagencytoregulatetheuseofanyclassofe-bikeontrailsunderitsjurisdiction.

Georgia,Indiana,Maine,Maryland,NewHampshire,OklahomaandSouthDakotaallowed“class1”and“class2”e-bikestooperatewherenon-electricbicyclesarepermitted,includingbikeandmultiusepaths,unlessotherwiseprohibitedbyalocalityorstateagencywithjurisdiction.Furthermore,thosesamesevenstatesprohibited“class3”e-bikesonbikeandmultipurposepathsunlessitiswithinoradjacenttoaroadwayorisauthorizedbythelocalityorstateagencywithjurisdiction.

Georgia,Indiana,Maine,Maryland,NewHampshire,Oklahoma,SouthDakota,Texas,WisconsinandWyomingempoweredstateagenciesandlocalitieswithjurisdictionovernaturaltrailstoregulate,permitorprohibite-bikeson“non-motorizedtrails.”Thesearegenerallydefinedastrailswithanaturalsurfacemadebyclearingandgradingthenativesoilwithnoaddedsurfacingmaterials.NewJersey’snewlaw,moreover,prohibitede-bikesontrailsdesignatedfornon-motorizedvehiclesunlesspermittedbyalocalgovernmentorstateagencywithjurisdiction.

Miscellaneous Bicyclist and Pedestrian SafetyDelaware(HB112)allowedtheDivisionofMotorVehiclestoissuebicycle-friendlylicenseplates,directingtheproceedsfroma$25surchargeforeachlicenseplatepurchasetosupportBikeDelawareanditsmissiontopromotesafenon-motorizedtransportation.

TheDistrictofColumbia,aspartofitsVisionZeroinitiative,beganusingaphototicketingsystemandparkingenforcementofficerstofinemotorists$150forparkingordrivinginabikelane.

InMaryland,thelegislature(HB82)addedaccesstoretailstoresthatprovidehealthyfood,especiallyinfooddeserts,asadesignfeatureandgoalofthestate’scompletestreetsprogramandassociatedpolicies.

TheNewHampshirelegislature(SB185)appropriated$200,000anddirectedthestatedepartmentoftransportationtoupdatethe2005statetrailsplananddocumentthebestmeanstomaintainanddevelopstate-ownedrailtrailcorridors,tobecompletedbyJune30,2021.

Utahenactedlegislation(HB208)requiringthestateDepartmentofTransportationtoestablishaSafeRoutestoSchoolProgram.Prioritymaybegiventoprojectslocatedinareaswithlow-incomeschools.

NATIONAL CONFERENCE OF STATE LEGISLATURES 58

Electric ScootersElectricscooters(e-scooters)wentfromodditytorealityinnumerouscitiesacrosstheU.S.in2019.AccordingtoanApril2019reportfromtheNationalAssociationofCityTransportationOfficials(NACTO),therewere38.5millione-scooterridesintheU.S.in2018,theyearwiththemostrecentdataavailable.Thatcomparestonearlyzeroridesin2017,beforescooter-sharecompaniesunveiledtheirservicesinU.S.cities,sometimestothechagrinoflocalofficials.Lime,oneofthemain“dockless”e-scooterprovidersinthecountry,offerse-scooterservicesinapproximately90Americancommunities.

NACTO’sreportfoundthatscooterstypicallyareriddenbetweenahalf-mileandamile.CombinethiswithfindingsfromINRIX,atrafficdatacompany,thatestimates“48%ofallcartripsinthemostcongestedU.S.metroareasarelessthanthreemiles,”anditisclearthereissignificantpotentialfore-scooterstopotentiallyimprovemobilityandcongestion.However,researchregardingelectricscootersafetyisstilldeveloping.A CDC-supportedstudyinAustin,Texas,examinedcloseto200e-scooterridersinjuredinathree-monthtimeperiodduringthefallof2018.Thestudyfound45%ofinjuredridershadsufferedheadinjuriesandonlyoneriderinthestudycohortwaswearingahelmet.Interestingly,therewereonlytwoconflictswithbicyclistsandpedestrians,andarelativelysmall10%collidedwithavehicle.Excessivespeed(37%)andnighttimeriding(39%)appearedtobetwomoreprevalentcontributingfactors.Morethanathird—35%—oftheinjuredriderswereinjuredontheirfirstscooterride.

In2019,atleast19statesenactedlegislationaddressinge-scooters.TheywereAlabama(SB312),Arizona(SB1398),Arkansas(HB1619),Colorado(HB1221),Connecticut(HB7141),Florida(SB542),Indiana(HB1649),Kansas(SB63),Kentucky(HB258),Louisiana(SB91),Maryland(HB748),Nevada(AB485),NewJersey(SB731),NewYork(SB5294),Tennessee(SB1107),Utah(SB139),Virginia(HB2752),Washington(HB1772)andWisconsin(SB152).

Additionally,NewYork’sproposedlaw(SB5294)wasvetoedbyGovernorAndrewCuomooversafetyconcerns.Specifically,thegovernorcalledforamandatoryhelmetlawforriders,alowerspeedlimitthanthe20mphprescribedinthebill,restrictionsonwheree-scooterscouldberidden,aprohibitionagainstoperatingwhileimpairedbydrugsoralcohol,andmandatoryfrontandrearlights,which12otherstatesnowrequire.

NATIONAL CONFERENCE OF STATE LEGISLATURES 59

Electric Scooter Definitions

All19statesenactedvariousdefinitionsofan“e-scooter.”Commonelementsfoundinstatedefinitionsincludeweighinglessthan100pounds;havingtwoorthreewheels,ahandlebarandafloorboardthatapersonmaystandon;ispoweredbyanelectricmotororhumanpower,orboth;andhasamaximumoperatingspeedof20mph.Forexample,Kansasdefinedan“electric-assistedscooter”asaself-propelledvehiclewithatleasttwowheelsincontactwiththeground,anelectricmotor,handlebars,abrakeandadeckthatisdesignedtobestooduponwhenriding.

Fivestates—Colorado,Nevada,NewYork,TennesseeandWisconsin—definedsuchdevicesas“electricscooters.”Forexample,Colorado’slawreads:

• “Electricscooter”meansadeviceweighinglessthan100pounds,withhandlebarsandanelectricmotor,thatispoweredbyanelectricmotorandhasamaximumspeedof20mphonapavedlevelsurfacewhenpoweredsolelybytheelectricmotor.

Threestates—Kentucky,LouisianaandMaryland—definedsuchdevicesas“electriclow-speedscooters.”Twostates—ConnecticutandIndiana—definedsuchdevicesas“electricfootscooters.”Twostates—FloridaandVirginia—definedsuchdevicesas“motorizedscooters.”

Alabamadefined“sharedmicromobilitydevice”asatransportationdevicethatincludesascooterorsimilardevice.Arizonadefined“electricstandupscooter”asadeviceweighinglessthan75poundswithtwoorthreewheels,ahandlebar,afloorboardonwhichapersonmaystandwhileriding,andpoweredbyanelectricmotororhumanpower,orboth.Arizona’slawalsospecifiedthatan“electricstandupscooter”doesnotincludeanelectricminiaturescooter.Arkansasdefined“electricmotorizedscooter”asadeviceweighinglessthan100pounds,withtwoorthreewheels,ahandlebar,equippedwithafloorboardthatcanbeusedtostandon,andpoweredbyanelectricmotororhumanpower.

Source: NCSL, 2020

DE

AK

HI

VT

RI

NH

NJ

CT

DC

MA

MD

WA

OR

NV

CACO

MNMT

WY

UT

AZ NM

TX

ND

SD

NE

KS

OK

IA

WI

IL

MO

AR

LA

MI

INOH

PA

NY

KY

TN

MS AL GA

FL

WV VA

NC

SC

ME

ID

Laws enacted before 2019

Laws enacted in 2019

AS GU MP VI PR

State Electric Scooter Laws

NATIONAL CONFERENCE OF STATE LEGISLATURES 60

NewJerseydefined“low-speedelectricscooter”asadevicewithafloorboardthatcanbestooduponbytherider,withhandlebars,andanelectricmotorcapableofpropellingsuchdevicewithorwithouthumanpower.Utahdefined“motorassistedscooter”asaself-propelleddevicewithatleasttwowheelsincontactwiththeground,abrakingsystemandanelectricmotornotexceeding2,000watts.Moreover,amotor-assistedscootermayhavehandlebarsandadeckdesignedforapersontostandorhandlebarsandaseatdesignedforapersontosit.Washingtondefined“motorizedfootscooter”asadevicewithtwoorthreewheelsthathashandlebars,afloorboardthatcanbestooduponwhileriding,andispoweredbyaninternalcombustionengineorelectricmotor.

Maximum Operating Speeds

Eighteenstatesestablishedmaximumoperatingspeedsfore-scootersundervaryingcircumstances,withonlyKansasnotdoingso.Themaximumoperatingspeedsrangefrom15mphinArkansas,Utah,WashingtonandWisconsin,to19mphinNewJerseyand20mphineveryotherstate.

Age Restrictions

Sixstates—Arkansas,Kentucky,Nevada,Utah,VirginiaandWashington—approvedminimumagerestrictionstorideane-scooter.Arkansas,Kentucky,NevadaandWashingtonestablishedaminimumageof16yearsold.Virginiaestablishedaminimumageof14yearsold.Utahestablishedthelowestminimumageat8yearsold.

Helmet Requirements

Threestates—Connecticut,LouisianaandNewJersey—approvedhelmetrequirementsforcertaine-scooterriders.Connecticutrequiredridersyoungerthan15towearahelmet.LouisianaandNewJerseyrequiredridersyoungerthan17towearahelmet.

E-Scooter Weight

Thirteenstates—Alabama,Arizona,Arkansas,Colorado,Connecticut,Indiana,Kentucky,Louisiana,Maryland,Nevada,Tennessee,VirginiaandWisconsin—setmaximumweightlimitsforane-scooter.Thelimitsrangedfrom65poundsinConnecticutto75poundsinArizonaandupto100poundsinIndiana.Theother10stateswithweightlimits—Alabama,Arkansas,Colorado,Kentucky,Louisiana,Maryland,Nevada,Tennessee,VirginiaandWashington—setthemaximume-scooterweightat“lessthan100pounds.”

Light Requirements

Ninestates—Colorado,Connecticut,Indiana,Kentucky,Louisiana,Nevada,NewYork,VirginiaandWisconsin—includedlightingprovisionsfore-scooters.EverystateexceptLouisianaenactedlawsrequiringbothfrontandrearlights.Lightsaregenerallyrequiredfrom30minutesaftersunsetto30minutesbeforesunriseandmustbevisiblefromadistanceof500feetaheadandupto600feettotherear.

NewYork’svetoedlawwouldhaverequiredrearlightstobevisiblefrom300feet.Indianarequiredrearlightstobevisiblefrom500feet.Colorado,ConnecticutandVirginiarequiredrearlightstobevisiblefrom600feet.Nevadarequiredrearlightstobevisiblefrom50feetto300feet.Wisconsin’slawrequiredrearlightstobevisiblefrom50feetto500feet.Colorado,ConnecticutandNevadaalsorequiredreflectivematerialonthesidesofane-scooter.ColoradoandNevadarequiredsuchmaterialtobevisiblefrom600feetoralampthatisvisiblefrom500feetonbothsides.Connecticutrequiredreflectivematerialtobevisiblefrom600feetwhenilluminatedbytheheadlampsofavehicle.

Kentuckyrequirede-scooterstohaveatleastoneheadlampandonerearredlightwhenoperatedfrom30minutesaftersunsetto30minutesbeforesunriseoratsuchothertimeswhenatmosphericconditionsrendervisibilitylowerthanordinary.Louisianarequirede-scooterstobeequippedwithappropriatelights,reflectorsorreflectivemarkingswhenoperatedanytimebetweensunsetandsunrise,whenpersonsandvehiclesarenotclearlyvisible500feetahead,whenatmosphericconditionsnecessitatethecontinuoususeofwindshieldwipersandwhenridinginatunnel.

NATIONAL CONFERENCE OF STATE LEGISLATURES 61

Local Control

Eighteenstatesenactedlocalcontrolprovisions.TheyareAlabama,Arizona,Arkansas,Colorado,Connecticut,Florida,Indiana,Kansas,Kentucky,Louisiana,Nevada,NewJersey,NewYork,Tennessee,Utah,Virginia,WashingtonandWisconsin.Localcontrolgenerallyempowersalocalitytofurtherregulatee-scooters,includingwheresuchdevicesmaybeoperated.Italsoestablishesminimumcommercialliabilitycoveragefore-scootercompaniesandrequirese-scooterstobestagedinamannerthatcomplieswiththeAmericanswithDisabilitiesActregardingclearpassageonsidewalks.

Furthermore,Wisconsin’slawallowsamunicipalityorcountytorestrictorprohibittheoperationofelectricscootersonanyroadwayunderitsjurisdictionhavingaspeedlimitofmorethan25mph.Italsorestrictsorprohibitstheoperationofelectricscootersonanysidewalkorbicyclewayunderitsjurisdiction;establishesrequirementsforandlimitationsontheparkingofelectricscootersonroadways,sidewalks,bicyclelanes,etc.;andrestrictsorprohibitstheshort-termcommercialrentalofelectricscooterstothegeneralpublic.CaliforniaandOregonhavesomesimilarlanguageandrestrictionsonroadsonwhichscooterscanbeoperated.

Utahputinplacesomecommonstandardsformunicipalitiestousewhenregulatingscooter-shareprograms.Alocalauthoritymayregulatetheoperationofamotor-assistedscooterwithinitsjurisdiction,includingauthorizingtheiroperationanddesignatingamaximumspeedonsidewalks.Regulationmustbeconsistentwiththeregulationofbicyclesandpenaltiesforamovingorparkingviolationinvolvingamotor-assistedscooterorasharedscootermustbeassessedtothepersonresponsiblefortheviolationandmaynotexceedpenaltiesassessedtoariderofabicycle.

LocalitiesinUtahmayrequirefeesfromthescooter-shareoperator.Theyalsomaydesignatelocationswherescooter-shareoperatorsmaynotstagesharedscooters,providedthatatleastonelocationshallbepermittedoneachsideofeachcityblockincommercialzonesandbusinessdistricts.Theyalsomayrequirescooter-shareoperatorstoprovideanonymizedfleetandrideactivitydataforcompletedtripsstartingorendingwithinthejurisdiction,withsomeprivacysafeguardsbuiltin.

Tim Storey, Executive Director

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www.ncsl.org

©2020bytheNationalConferenceofStateLegislatures.Allrightsreserved.

NCSLContact:

Douglas ShinkleTransportationProgramDirector

303-856-1482douglas.shinkle@ncsl.org