Detailed Information on the
Criminal Justice Services Assessment

Developing a comprehensive measure for the forensic services program.

Measure: % of Electronic Fingerprints Identified within 2 Hours - Criminal

Explanation:Data from IAFIS system; measures 1-4 are inter-related

Measure: % of Electronic Fingerprints Identified within 24 Hours - Civil

Explanation:Data from IAFIS system; measures 1-4 are inter-related

Measure: % of Electronic Fingerprints Identified within 2 Hours - Criminal

Explanation:Data from IAFIS system; measures 1-4 are inter-related

Measure: % of Electronic Fingerprints Identified within 2 Hours - Criminal

Explanation:Data from IAFIS system; measures 1-4 are inter-related

Measure: % of NICS checks with an Immediate Determination

Explanation:Data are based upon FBI call center / transfer process Immediate Determination Rate on a gun sale (allowed/not-allowed)

Measure: Number of Accredited Bomb Squads

Explanation:Based upon creation of 6-person bomb squads, requiring training of new techs and recertification of existing techs

Measure: % of Electronic Fingerprints Identified within 2 Hours - Criminal

Explanation:Data from IAFIS system; measures 1-4 are inter-related

Measure: % of Electronic Fingerprints Identified within 24 Hours - Civil

Explanation:Data from IAFIS system; measures 1-4 are inter-related

Is the program purpose clear?

Explanation: The FBI's Criminal Justice Services (CJS) represent several programs within the FBI, mainly in the Criminal Justice Information Services (CJIS) and Laboratory Divisions, that are dedicated to supporting state and local law enforcement efforts. The specific purpose behind most of these programs stems from legislation, and is further defined in the FBI's strategic plan. Major programs included are 1) fingerprint services (IAFIS); 2) criminal information services (NCIC); 3) national crime statistics (UCR); 4) handgun control background checks (NICS); 5) national DNA database management (NDIS).

Evidence: IAFIS- Title 28, U.S. Code (U.S.C.) Sec. 534; Title 28 Code of Federal Regulations (C.F.R.), Sec. 0.85(b). Federal and Non-federal Applicant User Fee Programs - Public Law 101-515, Title II, 11/5/1990, Stat. 2112, 28 U.S.C. 534, Sec. 614; NCIC- Title 28, U.S.C. 534, Title 28, C.F.R., Chapter I-Part 20 - Criminal Justice Information Systems - Title 28, C.F.R. Title 22, U.S.C. Section 263 (a); Title 28 C.F.R. Sections 34, 534, 85, 50.12; UCR- UCR Act of 1988 - Title 28, U.S.C., Sec. 534 - Hate Crime Statistics Act of 1990. Public Law 92-544. UCR Reporting Act mandating Federal law enforcement participation in the UCR effective January 1989; and Hate Crime Statistics Act of 1990; NICS- Brady Handgun Violence Prevention Act (Brady Bill), Public Law 103-159 (107 Sat. 1536); Gun Control Act of 1968, as amended (18 U.S.C. Chapter 44); NDIS- DNA Identification Act of 1994 (42 U.S.C §14132); & the DNA Analysis Backlog Act of 2000 (P.L. 106-546). General regulatory guidance- 28 C.F.R. Sec. 0.85(b) and (g).

Does the program address a specific and existing problem, interest or need?

Explanation: In general, CJS programs operate at a scope beyond that available to state or locally based law enforcement. In a mobile society, having accurate and timely information is crucial for today's law enforcement and civil organizations when they need to know suspects criminal history and other identifying characteristics (e.g., fingerprints, DNA). The FBI is striving for real-time response times by updating its systems, utilizing the Internet, and integrating information data bases to provide fast, one-stop shopping. In addition, state and local law enforcement often are unable to process unusually large or complex crime scenes with their resources alone in the time frame required by the judicial system. The FBI is able to provide forensic services to help out in these special circumstances. Criminals are especially mobile in today's society and the need to link crime data and information across the country still exists.

Evidence: Besides the above-cited legislation, program strategies that define the strategic necessity of CJS programs can be found in the DOJ Strategic Plan and the CJIS and Laboratory Division Program Plans. In addition, output statistics compiled by the different programs demonstrate the demand for these services from state and local law enforcement entities throughout the country. The FBI keeps records of the amount of information processed and cases assisted. For example, to date in FY 2004: 1) the Federal Convicted Offender Program (FCOP) has received 25,558 samples from Federal convicted offenders; 2) NCIC has logged 1.3 billion transactions; & 3) 9,138,106 criminal fingerprints have been received and processed.

Is the program designed so that it is not redundant or duplicative of any other Federal, state, local or private effort?

Explanation: Many state and local programs with similar functions do not have the authority to engage in the same activities as CJS programs. CJS information systems allow for inter-jurisdictional identification checks, unlike their state and local counterparts. The simultaneous data searches across jurisdictions offered by CJS programs are not redundant of any single jurisdiction's services. NCIC, in particular, is a one-of-a-kind system. The Federal Governemnet is required to analyze DNA samples from federally convicted offenders. Some CJS programs, such as NDIS, the Mitochondrial DNA (mtDNA) program and the Hazardous Devices School (HDS) are the only programs of their type in the country. State & local law enforcement are highly unlikely to have any source for these services with the comparable scope and resources that are offered by CJS programs.

Evidence: The FBI works with other federal, state, and local agencies to ensure that services are not duplicated. For example, FBI has arrangements with other federal agencies (e.g., BICE, Department of State (DOS), Department of Homeland Security (DHS)) in using its fingerprint processing services rather than unnecessarily creating their own systems. CJIS supports the National Fingerprint File which reduces the duplication of having two respositories retaining duplicate sets of criminal history records. The CJIS NICS program does not conduct checks where states conduct such checks. The NCIC is a one-of-a-kind system.

Is the program design free of major flaws that would limit the program's effectiveness or efficiency?

Explanation: The FBI improves efficiency and corrects flaws in CJS programs on a continuous basis, often through implementing or enhancing automated systems. In 1999, fingerprint identification services and NCIC performance capabilities received major technological upgrades. Ongoing technical refreshment continues to improve identification services. In 2004, FBI delivered an internal billing system to address identified civil identification service billing problems. While some issues remain in select programs, such as state participation in NICS and UCR and limits on the expansion of the CODIS program, these are not program design problems. Participation in these programs is voluntary, and some jurisdictions choose not to participate. The FBI cannot impose services or training upon state organizations, nor force submission of samples or reports.

Evidence: CJS automated systems have experience increased usage and performance, particularly in fingerprint identification and NCIC processes since 1999. Recent processes have been designed to improve the timeliness of UCR/National Incident-Based Reporting System (NIBRS) by automating the process. The FBI cannot force a state or local law enforcement agency to participate in these activities, and thus the option for these types of programs is voluntary participation. However, the FBI continues to provide outreach to help create a more effective system. The FBI approaches state and local governments as partners in law enforcement, and conducts its assistance efforts with a customer service-oriented model.

Is the program effectively targeted, so that resources will reach intended beneficiaries and/or otherwise address the program's purpose directly?

Explanation: Any Federal, State or local law enforcement agency is a beneficiary of the services provided by CJS. There are cases such as the Forensic Services where prioritization is required to ensure that the limited FBI resources reach the indended benificiaryes For example, the lab has the following prioritization: a) No examination will be conducted on evidence that has been previously subjected to the same type of examination. Exceptions may be granted when there are reasons for a reexamination. b) No request for an examination will be accepted from laboratories having the capability of conducting the examination. Exceptions may be granted upon approval of the FBI Laboratory Assistant Director or a designee. c) No testimony will be furnished if testimony on the same subject and in the same case is provided for the prosecution by another expert. d) No request for an examination will be accepted from a nonfederal law enforcement agency in civil matters. Other materials required such as terminal/workstations for automated systems are available to customer agencies.

Evidence: See 28 C.F.R. sec. 0.85 (b) and (g). All customer agencies that have access to CJS programs are on record.

Does the program have a limited number of specific long-term performance measures that focus on outcomes and meaningfully reflect the purpose of the program?

Explanation: CJS long-term measures: 1) percentage of electronic fingerprint identifications (IAFIS) completed within target time (a) 2 hours criminal and (b) 24 hours civil and 2) the number of bomb squads that meet HDS compliance

Evidence: FBI and DOJ Budget/Performance Plan documents; automated statistical reports.

Does the program have ambitious targets and timeframes for its long-term measures?

Explanation: 1) electronic fingerprints identified in target time frame: (a) 95% for criminal (b) 98% civil; 2) 508 active bomb squads that meet HDS compliance by 2008

Evidence: FBI and DOJ Budget/Performance Plan documents; automated statistical reports.

Does the program have a limited number of specific annual performance measures that can demonstrate progress toward achieving the program's long-term goals?

Explanation: A) percentage of electronic fingerprint identifications (IAFIS) completed within target time (2 hours criminal, 24 hours civil), B) annual NICS immediate proceed rate of 90%

Evidence: FBI and DOJ Budget/Performance Plan documents; automated statistical reports.

Does the program have baselines and ambitious targets for its annual measures?

Explanation: Baselines and targets have been established for all performance measures in the Measures section

Evidence: FBI and DOJ Budget/Performance Plan documents; automated statistical reports.

Do all partners (including grantees, sub-grantees, contractors, cost-sharing partners, and other government partners) commit to and work toward the annual and/or long-term goals of the program?

Explanation: CJIS Division receives commitment and support from the Advisory Policy Board (APB), which is made up of state and local law enforcement agencies working with the CJIS to deliver effective identification programs. Other federal and state stakeholders are working toward improving response times and data quality of fingerprint and criminal history records being sent to CJIS to improve the effectiveness of the fingerprint, NCIC, and NICS programs. The long-term goals of the CODIS program are supported by all partners as are the mtDNA program partners in research, CODIS development, NMPDD and Regional Labs. The HDS conducts weekly program reviews with its partner, the US Army to define milestones and objectives.

Evidence: APB Reports and Workshops, Department of Justice (DOJ) Strategic Plan, CJIS Program Plan, Laboratory Division Program Plan; tasks and goals are provided to project contractors through Statements of Work (SOW).

Are independent evaluations of sufficient scope and quality conducted on a regular basis or as needed to support program improvements and evaluate effectiveness and relevance to the problem, interest, or need?

Explanation: FBI is initiating a periodic, independent program evaluation process of all of its programs by the Inspection Division. CJS programs are currently scheduled for this review in FY 2004. Scheduled evaluations will cycle every 5 years. CJIS division has Advisory Policy Board (APB) reviews of the effectiveness and relevance of its automation systems. Periodic reviews of the CJS programs, such as GAO, are used to make program improvements.

Evidence: The FBI Inspection Division schedule/evaluations; ASCLD-LAB accreditation reviews; QATU annual evaluations; DOJ-OIG audits; GAO and contractor reports; CJIS APB Reports; & CJIS Auditor's Reports.

Are Budget requests explicitly tied to accomplishment of the annual and long-term performance goals, and are the resource needs presented in a complete and transparent manner in the program's budget?

Explanation: The CJS program submits a budget request in accordance with the FBI's Internal Budget Submission Guidance. This procedure does not tie the budgets to all of the performance measures. There is no narrative discussion of how performance targets will be met with resource changes. The new FBI budget structure now being constructed will help remedy this deficiency.

Evidence: FBI budget presentations; FBI Division budget requests; Exhibit 300b forms; annual Capital Asset Plans and CJIS Information Technology Resource Management Board (ITRMB) documents.

Has the program taken meaningful steps to correct its strategic planning deficiencies?

Explanation: CJS programs have been proactive in reducing potential deficiencies. The following practices have been instituted to solicit additional input from internal and external sources: created long-term planning staff positions; worked with special review boards of external customers to ensure that major acquisitions support program mission and to ensure that long-term goals will meet customer requirements; created new contract administration offices to ensure that contracts meet requirements and deliverables; conducted strategic planning workshops to improve internal understanding of the strategic planning process; engaged partners/customers in annual conferences and meetings; and created job posting review groups to assist in managing personnel resources.

Evidence: Scientific Working Group on DNA Analysis Methods (SWGDAM) records; CODIS Conference and semiannual CODIS State Administrators meeting documents; CJIS High-Level Planning Staff (HLPS), ITRMB, and Contract Administration Office (CAO) documents; APB (Advisory Policy Board) and CJIS training files.

Does the agency regularly collect timely and credible performance information, including information from key program partners, and use it to manage the program and improve performance?

Explanation: CJS programs collect the following types of information for tracking and enhancing performance: surveys and feedback from working groups and other end-user data; monthly contractor reports; earned value analyses of major IT refreshment contracts; output data from statistical reports; & adhoc studies to identify value of services to customers. For some systems, these performance data are shared with state or local customers.

Evidence: FBI and DOJ Budget/Performance Plan documents.; monthly CODIS reports, HDS course critiques, NMPDD technical working group feedback for mtDNA program; APB reports; Earned Value evaluations (; CJIS statistical reports on automated systems (daily, weekly, monthly); BJS reports; letters to state users; Customer Service Satisfaction Surveys (IAFIS, NCIC, NICS, III, UCR, LEO).

Are Federal managers and program partners (including grantees, sub-grantees, contractors, cost-sharing partners, and other government partners) held accountable for cost, schedule and performance results?

Explanation: The FBI makes considerable effort to evaluate Federal Managers, but the performance evaluation program in place does not include performance management contracts. Contractors are accountable for cost, schedule and performance goals: delivery schedules; project team meetings; project cost accounting; and project progress summary reporting. However, they are not required to meet establish performance goals.

Evidence: Annual performance appraisals; Contracting Officer reviews; project manager expenditure and performance reports; contract files.

Are funds (Federal and partners') obligated in a timely manner and spent for the intended purpose?

Explanation: A spending plan is developed for each FBI division annually. CJS program expenditures, obligated expenses, and available funds are reviewed by program managers on a quarterly basis at a minimum, often on a monthly basis. FBI Finance Division also does a quarterly enterprise-wide review of obligations, expenditures, available funds, and contracts.

Evidence: FBI Spending Plans; CJIS Budgetary Evaluation and Analysis Reporting System (BEAR) System; Activity-based Costing (ABC) data; ITRMB documents; time and attendance reports.

Does the program have procedures (e.g. competitive sourcing/cost comparisons, IT improvements, appropriate incentives) to measure and achieve efficiencies and cost effectiveness in program execution?

Explanation: CJS programs engage in the following practices to improve public value: oversight by review boards to ensure that limited financial resources are spent on the highest priorities; earned value analysis on major technology refreshment contracts; strategic planning staff reviews to identify and track performance measures to ensure programs are efficient and effective in delivering identification services; & track program costs using activity-based costing (ABC) to measure efficiency.

Evidence: CODIS contracting plans; BEARS reports; CAO, regular statistical reports, and ITRMB documents; IAFIS, NICS, NCIC performance measurements.

Does the program collaborate and coordinate effectively with related programs?

Explanation: CJIS works closely with other government agencies (DOD, DOS, DHS, ATF), in meeting the statutory and mission requirements for identification programs (e.g., fingerprint, gun purchases). DNA units within FBI Lab Division coordinate and participate in joint planning sessions. The NDIS Procedures Board, which is responsible for the protocols and procedures governing participation on the National Index, includes State and local representatives as well as representatives of the various DNA units. HDS collaborates with other Federal partners in public safety bomb squad response to include ATF, CIA and the US Secret Service by providing bomb technician training to fulfill the missions of both agencies. The mtDNA program is an active participant in the Scientific Working Group on DNA Analysis Methods (SWGDAM) and its various subcommittees.

Evidence: Interagency correspondence; CODIS grant program documents; CJIS APB documents; SWGDAM correspondence.

Does the program use strong financial management practices?

Explanation: All programs follow all federal and FBI regulations, at a minimum, for managing funding. Spending plans are developed annually for the programs and spending plan reviews are conducted on a quarterly basis to determine timely expenditure of funds. Independent auditors are contracted to inspect financial records and assist in preparation of an independent financial audit.

Evidence: FBI financial audits; CJIS, Lab, and Finance Division financial reports. The FBI's annual report under the FMFIA indicates no material weaknesses associated with CJS programs.

Has the program taken meaningful steps to address its management deficiencies?

Explanation: Any deficiencies in programs are reviewed and discussed to determine how to solve the problem. Issues are resolved through additional training or with the establishment of committees that provide input to the program's needs. For example, the CODIS Unit identified a major deficiency resulting from a lack of user input in the development of the program's long-term goals. That deficiency has been corrected by the establishment of the CODIS Committee, which provides specific input relating to the program's needs. Additional users were also added to the NDIS Procedures Board. CJIS also noted a need to maintain long-term continuity in managing CJIS programs, so it replaced senior Special Agent managers (who served an average of two years) with experienced and seasoned non-agent managers.

Evidence: Internal audits; strategic planning documents; personnel records and organization charts.

Has the program demonstrated adequate progress in achieving its long-term performance goals?

Explanation: Each of the CJS long-term measures is on track to meet its FY 2008 targets

Evidence: FBI and DOJ Budget/Performance Plan documents; automated statistical reports.

Does the program (including program partners) achieve its annual performance goals?

Explanation: Each of the CJS annual measures is on track to meet its FY 2004 targets

Evidence: FBI and DOJ Budget/Performance Plan documents; automated statistical reports.

Does the program demonstrate improved efficiencies or cost effectiveness in achieving program goals each year?

Explanation: Two of the three measures defined by the program are efficiency measures that demonstrate progress or success at achieving its program goals each year.

Evidence: FBI and DOJ Budget/Performance Plan documents; automated statistical reports.

Does the performance of this program compare favorably to other programs, including government, private, etc., with similar purpose and goals?

Explanation: Some CJS programs are standards unto themselves, having no basis for comparison. For example, there are no similar national DNA database programs for convicted offenders. Similarly, state and local DNA databases, while similar in purpose, rely upon the CODIS software, training and support provided by the FBI. For programs where there is a basis of comparison, CJS programs perform equal to or greater than any other identification bureaus in the United States or the rest of the world. Much of the current operating capacity results from automation enhancements since 1999. The NICS handles more gun checks transactions than all state NICS programs combined. NCIC is the largest such data base with a response time of under 1 second while handling over 4 million transactions a day. The FBI handles over 50,000 fingerprint submissions a day.

Evidence: FBI and DOJ Budget/Performance Plan documents; automated statistical reports. CJIS files, Accomplishment Reports, Program Plan, Statistical and Performance Reports and BJS Web site.

Do independent evaluations of sufficient scope and quality indicate that the program is effective and achieving results?

Explanation: A new system of regular independent evaluations is being implemented in 2004. The results of the evaluation will be reflected in the next PART for this program.

Evidence: Inspection Division report and schedule.