In 2008 the FBI's Criminal Justice Information Services division (CJIS) embarked on an ambitious effort to enable information sharing among every federal, state, tribal and local law enforcement agency in the United States. It launched the National Data Exchange (N-DEx), an $85 million data warehouse project, and waited for the data to roll in. Kevin Reid, the program manager at that time, expected the majority of agencies to be voluntarily participating by 2009 — two years ahead of plan.
Today, five years later, around 4,200 of the nation's 18,000 law enforcement organisations — around 23% of agencies — are contributing data to the system. Money, politics and technology have all played a role in the delays.
CJIS has faced a difficult challenge for any IT project: How do you get a diverse array of independent organisations to engage with a new technology for the common good when each has its own priorities — and when participation requires a substantial investment in both time and money to get connected?
Although CJIS does not charge agencies to use the service, software upgrades and integration of existing records cost money — sometimes in the tens of thousands of dollars, experts say.
Launched in the depths of the recession, the program quickly fell behind schedule. There are signs, however, that N-DEx participation may finally be gaining some momentum.
The idea behind N-DEx was to establish a set of data sharing standards and a central hub, a giant data warehouse into which CJIS could pull together law enforcement incident reports from thousands of disparate, proprietary and often incompatible federal, state, local and regional databases and data sharing networks.
In this way, the theory went, investigators at every level could identify patterns of criminal activity that span multiple jurisdictions to help solve crimes. Authorized users could access N-DEx through a Web portal or by way of their own agency's records management system, once it was configured to do so.
Although it has yet to reach critical mass, N-DEx has already shown promise in allowing investigators to "connect the dots" across state borders when investigating crimes, says Maury Mitchell, director of the Alabama Criminal Justice Information Center, a major contributor to N-DEx.
The federal database augments smaller networks and one-to-one sharing agreements and integrations between jurisdictions with a central point of exchange and a common memorandum of understanding, or legal agreement between parties.
Right now, for example, the state of Alabama shares information with Kansas, Wyoming and Nebraska, but has no such arrangement with Florida. "Significant crime crosses the panhandle into Alabama and vice-versa," Mitchell says. CJIS, he says, could make information sharing easier — if Florida makes the commitment to participate.
Sign up for CIO Asia eNewsletters.