© 2005 Behavioral Health Research Institute of the Southwest
612 Encino Place NE / Albuquerque, NM 87102 / 505.244.3099 / www.bhrcs.org

Drinking, Driving, and Drugs:
A Comparative Study of Juvenile Substance Abuse Offenders
in Bernalillo County, NM
By Nancy Owen Lewis, Ph.D. and Iyiin Chang, M.S.

1. INTRODUCTION

"When young people engage in alcohol and other drug use, they, their families and their communities usually suffer" (Dickinson and Crowe 1997).

Substance abuse is a serious problem among our nation’s youth, and driving while intoxicated (DWI) is one of its most dangerous consequences. Although alcohol-related motor vehicle fatalities among youth have declined more than 50% during the past 10 years, alcohol-related traffic crashes are still the leading cause of death for adolescents. Such crashes account for 20% of all deaths of persons ages 15-20 (Snyder and Sickmund 1995).

The problem is even more serious in New Mexico. In 1995, the motor vehicle mortality rate for New Mexico youth (15-24) was 46.3 per 100,000 population -- compared to 29.6 per 100,000 youth nationally (NM Dept. of Health 1997). Forty-two percent of New Mexico’s under-21 fatalities involved alcohol compared to 38% nationally (NHTSA 1996). Moreover, 29% of underage drivers in New Mexico fatal crashes were impaired compared to 13% nationally.

Beck and Lockhart (1992:36), in examining the factors that contribute to underage DWI, describe impaired driving as part of a generalized risk syndrome. Similarly, Donovan (1993) demonstrates a relationship between juvenile drunk driving and other problem behaviors, including drug use. Other studies have shown a relationship between driving convictions and frequent arrests for non-vehicular offenses (Escobedo et al. 1995). Some researchers have postulated a progression of juvenile problem behavior starting with alcohol use (Huzinga et al. 1989). For some youth, alcohol use may be the primary problem, while for others it may be one of a constellation of high-risk behaviors (Gordis 1997).

To better understand the relationship between underage DWI and other substance abuse offenses, this study examines the characteristics of 1,518 offenders referred to the Juvenile Probation and Parole Office in Albuquerque, NM, from July 1994 through June 1995 for a drug or alcohol offense, including DWI. Referral practices and judicial procedures are examined and an attempt made to explain why reported DWI conviction rates are so low. According to New Mexico Motor Vehicle Statistics (1990-1995), the statewide conviction rate for adult DWI offenders (21+) is 71.3%, compared to 30.6% for underage offenders. In Bernalillo County, the juvenile conviction rate is 18.9%.

By targeting substance abuse offenders, this study addresses certain gaps in our understanding of juvenile DWI. Much of our knowledge about juvenile drunk drivers and other substance users comes from surveys and studies of non-offender populations (Jones and Boyle 1996, Beck and Lockhart 1992, Farrow and Brissing 1990, Grube and Voas 1996, Foley and Huang 1997). Less is known about offender populations and what actually happens to juveniles after they’re arrested. A study in Florida revealed that liquor law violators were more likely to receive a lenient sentence than other juvenile offenders (Frazier and Potter 1982). Research in Seattle revealed that prior to the enactment of stiffer penalties in 1978, drug and liquor cases were dealt with more leniently than other misdemeanor or felony cases (Schneider 1988). In a recent national study, Snyder (1997) reports that 72% of the 4,000 juvenile DWI cases processed in 1994 were handled formally -- i.e., referred to the district attorney’s office for prosecution.

To assess the effectiveness of the juvenile justice system in addressing problem behavior, this study examines recidivism and its relationship to offense history, sentencing practices, and demographic characteristics. Such information is critical to the development of strategies designed to reduce recidivism as well as alcohol abuse and dependence. At present, 48% of New Mexico’s juvenile offenders have at least one prior offense. According to a recent report:

"In the 1980's the juvenile population grew 7%, but juvenile arrests grew three times faster. The result has been a juvenile justice system characterized by over-crowded facilities, high caseloads, and fragmented services" (NM CYFD 1995a 1-2).

Despite these problems, the juvenile justice system has the potential to effectively address substance abuse problems among youth. Interventions, however, need to be employed when a substance abuse offender first enters the system. According to the National Institutes of Health, youth who begin drinking before age 15 are 4 times more likely to develop an addiction than those who begin drinking at age 21 (OJJDP 1998).

The purpose of this study is to determine the relationship between juvenile drunk drivers and other substance abuse offenders in terms of demographic characteristics, offense history, recidivism rates, referral procedures, and sentencing practices. Its ultimate goal is to provide further insight into the nature of underage DWI so that more appropriate interventions can be designed to address this problem.