ForensicInformationDataExchange(FIDEX) FinalProjectReport

2008IJCXK405

April 30, 2010

The NFSTC is pleased to submit this Final Report to the United States Department of Justice, Office of Justice Programs, National Institute of Justice.

William Ford Division Director Information and Sensor Technology Division Office of Science and Technology National Institute of Justice Washington, D.C. 20531

NFSTC Contact: Kevin Lothridge Chief Executive Officer National Forensic Science Technology Center 7881 114th Avenue North Largo, FL 33773 Tel: 727-549-6067 ext. 103 Fax: 727-549-6070 Kevin.Lothridge@nfstc.org

Contents
FIDEX Final Project Report ........................................................................................................... 1 Overview and History ................................................................................................................. 1 Description and Goals ................................................................................................................. 3 Results from Pilot Tests .............................................................................................................. 7 Lessons Learned.......................................................................................................................... 8 Conclusion and Possible Next Steps ......................................................................................... 10 Appendices .................................................................................................................................... 12 Appendix A FIDEX Survey Results ............................................................................................. 13 Appendix B Project Timeline ....................................................................................................... 19 Appendix C Main FIDEX Working Group .................................................................................. 22 Arizona FIDEX Subgroup ........................................................................................................ 23 Appendix D FIDEX Working Group Contact Information .......................................................... 25 Appendix E FIDEX LEA Concept Paper ..................................................................................... 27

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OverviewandHistory
For decades, forensic evidence has been important in the investigation and adjudication of criminal casework, capable of identifying suspects and exonerating the wrongly accused. In recent years, however, severe laboratory backlogs have clogged the system and affected the ability of the criminal justice system to fully benefit from the value of forensic evidence. According to the 2005 Bureau of Justice Statistics Census of Publicly Funded Crime Laboratories, laboratories reported 360,000 backlogged requests for forensic services that year, an increase of 24 percent between 2002 and 2005. An informal assessment of 94 state and local crime laboratories, conducted in 2009 in collaboration with the IJIS Institute, found that 79 percent 1indicated having some form of a laboratory information management system (LIMS) in place, but 87 percent of these laboratories still accept forensic requests via handwritten long forms. To further complicate the backlogs, the IJIS Institute estimates that an average laboratory spends more than 5,000 hours every year clarifying examination requests with the submitting agency or responding to requests from the agencies for updates about the status of examination requests. Ninety-eight percent of laboratories reported the need for analysts to spend time in administrative follow-up rather than analytical duties. Appendix A contains a summary of the findings from the IJIS Institute survey. In summary, the combination of increased caseload and inefficient information management processes significantly clogs the entire justice process, and promises to worsen in the future as the forensic sciences expand their scope, utility and technology. Meanwhile, as requests for
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IJIS Institute, FIDEX Survey Results, February 24, 2009

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crime laboratory examinations mount, laboratory directors are seeking to reduce their backlogs and provide timely results to law enforcement officers and prosecutors. Recognizing the importance of streamlining case management to reduce the staggering backlog of cases in the nations crime laboratories, the National Institute of Justice (NIJ), through its cooperative agreement with the National Forensic Science Technology Center (NFSTC), has created a standardized tool for sharing forensic case information among agencies in the justice community. In 2007, NIJ provided funding to NFSTC, with subcontracts to the IJIS Institute and Waterhole Software, to begin developing the Forensic Information Data Exchange (FIDEX), a set of technical specifications to facilitate systems interoperability and the electronic transmission of information to and from forensic crime laboratories. Built using 21st century Web-based technology, the FIDEX tool provides an electronic platform that enables more efficient sharing of forensic information among criminal justice stakeholders, including law enforcement, prosecutors and crime laboratories. Using standards based on the National Information Exchange Model (NIEM) version 2.0, FIDEX provides an end-to-end solution for the real-time exchange of forensic case information, while enhancing and integrating the functionality of formerly stand-alone information management systems in different law enforcement agencies and crime laboratories. FIDEX provides a paperless process that eliminates the traditional hand-written long form that accompanied laboratory requests in the past and generated many follow-up calls for clarification. FIDEX also eliminates duplicate data entry among different agencies and increases the accuracy of system data. Real-time access to case information reduces case processing time by allowing crime laboratory managers to determine the disposition of cases that may have been plea-bargained or dismissed in the courts, allowing them to make informed decisions about prioritizing casework.

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The processing of a forensic case requires information and coordination among multiple practitioners within a jurisdiction. The FIDEX project supports the exchange of evidence-related information by facilitating the request for forensic services, linking laboratory information management systems (LIMS) with other criminal justice information systems and using the Information Exchange Package Documents (IEPDs) to exchange data about case submissions and case dispositions. Law enforcement agencies, crime laboratories and the courts can benefit from new information exchanges that improve the efficiency of forensic services requests and improve communication with the courts about case status. By facilitating real-time, end-to-end data sharing among all agencies involved, the FIDEX project has significant potential to decrease the backlog of cases in the countrys crime laboratories, while providing a high return on investment (ROI) through the efficiencies that can be achieved over conventional paper-based processes.

DescriptionandGoals
Many stakeholders within the criminal justice system have information management systems, but these systems were not developed to be interoperable, resulting in information gaps. As a result, reconciling case-related information among law enforcement, crime laboratories and prosecutors offices creates a burden that adversely affects a crime laboratorys processes, leading to significant backlogs. The goal of the FIDEX project is to enhance the exchange of forensic information and data among criminal justice stakeholders. This can be accomplished by providing a modular, portable, NIEM-compliant, reusable XML data format and supporting documentation to criminal justice agencies wishing to share forensic information electronically.

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The FIDEX system consists of a Web portal that acts as a central hub running on an intranet server at the crime laboratory. Two standardized sets of Information Exchange Package Documents (IEPDs) help agencies with disparate systems to map their data so a laboratory information management system (LIMS) can efficiently and accurately exchange information with a records management system (RMS) or an evidence management system (EMS). Two IEPDs have been developed thus far, one for submitting forensic case evidence to the crime laboratory and one for following the disposition of court cases for which forensic evidence has been submitted. The FIDEX portal demonstrates the data elements and functionality of the IEPDs, giving implementers the opportunity to interface with other systems in a practical environment. By standardizing the case submission process for law enforcement, FIDEX streamlines case intake and management procedures within the crime laboratory. And by electronically determining the real-time status of court cases through the FIDEX portal, crime laboratories can reduce their backlogs by identifying cases that have been dismissed or plea bargained in the courts and no longer need crime laboratory analysis.

Major milestones in FIDEX project activities spanning the period from January 2007 to December 2009 include:
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Project Analysis and Planning Establishing the FIDEX Working Group: Defining Forensic Exchange Methods and Opportunities Arizona Criminal Justice Commission (ACJC) Exchange Analysis Subgroup Activities Information Exchange Package Documentation (IEPD) Development and Publishing FIDEX Portal Planning and Development Pilot Testing Activities for Phoenix PD and Boston PD A full timeline of FIDEX development and implementation activities is included in Appendix B, and Appendices C and D contain the names of individuals who participated in the FIDEX working groups. Appendix E contains a concept paper about FIDEX that was distributed to potential agency partners by the Arizona Department of Public Safety. An early goal of the project, as identified by the FIDEX Advisory Group, was the need to build partnerships that represented key stakeholders in the reduction of crime laboratory backlogs and to involve them in the project, especially in terms of mapping out workflow and business processes. The FIDEX team used that information to develop the data requirements on which the IEPDs were based. A particularly useful FIDEX feature includes a management reporting tool, the Executive Dashboard, which allows informed resource allocation based on real-time data about the status within the court system of the laboratorys backlogged cases. This feature supports improved, more efficient workflow management for crime laboratories and the agencies they work with. Unlike most criminal justice systems, FIDEX aggregates and reports data in a variety of ways, and the reports can be customized to meet specific managerial needs. For example, a laboratory manager may want to see the backlogged workloads of different analysts in the lab. FIDEX can

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produce this user-friendly graphic to help the manager distribute the workload more evenly among the analysts.

With this customizable Dashboard reporting, laboratory managers can get the real-time pulse of the organization and the workflow. They can better distribute caseloads, identify patterns of backlogged cases and better schedule yearly vacations. Furthermore, by using the Case Detail screen and the systems e-mail alert feature, managers can monitor a case and raise its priority as the cases court date approaches, avoiding a continuation. FIDEX information sharing increases the efficiency of data exchange through scalable integration of previously isolated information systems in the law enforcement community. The electronic platform for submission of forensic examination requests not only streamlines the case
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management intake procedure within the laboratory, it also significantly improves business processes across jurisdictions, including law enforcement. For example, the system will automatically send an e-mail to criminal justice professionals involved in a case anytime the status of the case changes or when new evidence is added to a case. FIDEX allows agencies to interconnect and share case information, eliminating the silo effect in which all stakeholder agencies have essentially the same information but dont effectively exchange data, often operating in virtual isolation. FIDEX represents a significant step toward integrating data from different agencies in the justice community, leveraging Webbased technology to facilitate information sharing among crime laboratories and law enforcement agencies, which will ultimately reduce crime laboratory backlogs.

ResultsfromPilotTests
The Boston Police Department and crime laboratory have fully implemented FIDEX and the Phoenix Police Department is in the early stages of implementation. With only two small pilot implementations accomplished under this grant, performance metrics will have to wait until the system is deployed on a larger scale and for a longer period of time. However, both implementations did result in improved business processes; a streamlined, paperless method of submitting evidence to the crime lab; elimination of duplicate data entry with the auto-populate feature; and increased accuracy. Other benefits include: Reduced procedural time Real-time access to information Clarification from case agent to laboratory and vice versa Immediate and accurate status of analyses Court disposition of cases
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Ease of use with a user-friendly Web interface Minimal cost to implement More effective use of manpower and other resources FIDEX represents a ground-breaking step toward faster resolution of crime laboratory casework, reducing backlogs and benefiting law enforcement agencies, crime laboratories and the community as a whole. Because the system is scalable, it can be implemented at a size and scale proportionate to the business complexity and technical issues of any site wishing to implement it. Regardless of agency size, the FIDEX portal and IEPDs allow implementation partners to ensure that data elements and functional requirements align with their specific business requirements, while providing a model environment for practitioners to test and evaluate its components, modifying the system as necessary to meet internal needs.

LessonsLearned
FIDEX represents many firsts in criminal justice data exchange among disparate systems that were not designed to be interoperable, including the mapping of data elements between systems. The FIDEX business process model works for the most diverse software environments, and the IEPDs and portal can be configured to work with records management systems, evidence management systems and laboratory information management systems. The software is highly configurable, allowing laboratories and agencies to customize the amount of data validation performed during crime laboratory examination requests. Among the lessons learned during the FIDEX development and pilot implementation: Engage strategic partners early in the process. Dont be afraid to ask many questions, especially about business processes. Take a hard look at the problems that need to be solved.
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Be willing to learn from another organizations success. Understand the solution may be complex, and the concept may change during the process. The pilot tests revealed that FIDEX offers many potential benefits to the justice community. For example, FIDEX enhances interagency communication and has the capability to enhance intra-agency communication, as well. Instead of data residing in separate silos that require duplicative data entry, which invites error, FIDEX facilitates investigative case management by ensuring that data is shared accurately and completely with all agencies and departments involved. For agencies wishing to implement FIDEX to improve the exchange of forensic data, an implementation guide has been written as a companion piece to this project report. The guide covers technical and business aspects of installing the FIDEX portal and using the IEPDs for data exchange between the crime laboratory and other criminal justice agencies. An important consideration when implementing FIDEX is the return on investment. Tremendous savings in time, money and efficiency result from a FIDEX implementation within a jurisdiction. The cost to an agency is scalable based on the size of the server they plan to use and the number of systems they want to link into FIDEX. Another big savings comes from analyzing the workflow between the crime laboratory and the submitting agencies and modifying the FIDEX system to best accommodate and maximize the efficiency of the workflow. Another lesson learned is that the FIDEX Dashboard feature gives crime laboratory managers a robust tool that aggregates and reports on data in the system, providing management with customizable detailed information about incoming cases and the status of existing cases for informed decision-making and resource allocation.

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In some cases, an investigator may submit pieces of evidence for the same case at different times. With FIDEX, the crime laboratory analyst is notified by e-mail when subsequent evidence is submitted for a case, bridging the information gap. From an evidentiary standpoint, this allows the analyst to constantly reassess which pieces of evidence have the greatest probative value. As FIDEX implementations increase, the collection of metrics should show an empirical decrease in the number of backlogged crime laboratory cases.

ConclusionandPossibleNextSteps
One of the suggested future goals is to expand the portal to create an overarching case management system that adds prosecutors to the mix, facilitating communication among the prosecutor, the crime laboratory and the law enforcement investigator. Other possible next steps could include interfacing with CODIS and eventually with ViCAP. A future national strategy

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might also include connecting with regional, state and national law enforcement databases and with the FBIs Law Enforcement National Data Exchange (N-DEx), which can be reached at http://www.fbi.gov/hq/cjisd/ndex/ndex_home.htm. By implementing FIDEX on regional or statewide scales, the system could return more benefits and further reduce crime laboratory backlogs. The FIDEX team has also maintained a partnership with industry through the IJIS Institute and its data exchange initiatives. To date, FIDEX has been presented and demonstrated at the following conferences: The National Information Exchange Model (NIEM) Training Event in 2009 National Law Enforcement Telecommunications System (Nlets) 5th Annual Implementers Conference in 2008 The National Association for Justice Information Systems (NAJIS) in 2008 Law Enforcement Information Management (LEIM) in 2008 Other methods of spreading the word about FIDEX and its potential to reduce crime laboratory backlogs include potential articles to be published in industry magazines, such as the article about FIDEX that appeared in the March 2009 issue of Public Safety IT magazine. A copy of that article appears in Appendix F. Additional awareness and outreach activities might include presenting at professional conferences, conducting technical demonstrations and developing relationships with state Criminal Justice Integrated Systems (CJIS). By leveraging existing NIEM and XML standards, the FIDEX project allows agencies to share, acquire and repurpose data as a means of bridging information gaps. Recognizing the important role that streamlining case management can play in reducing backlogs, thereby saving valuable time and monetary resources, the National Institute of Justice has built a system to equip our nations crime laboratories with a standardized tool that can provide a mechanism for the interoperability of forensic case information sharing.
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Appendices

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AppendixA
FIDEXSurveyResults

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Whattypeofcrimelaboratory isyours? State 48.60% Local 37.38% Other 14.02% TotalResponses107

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AppendixB
ProjectTimeline
Forensic Information Data Exchange (FIDEX) Project Timeline January 5, 2010

Overview
The Forensic Information Data Exchange (FIDEX) project, based on NIEM 2.0, will help with the exchange of evidence related information by facilitating the request for forensic services, linking laboratory information systems (LIMS), and exchanging data for case submission and case disposition. Law Enforcement agencies, crime labs, and the courts will benefit from new information exchanges that will improve the efficiency of forensic services requests, and improve communication with the courts about case status. The main FIDEX project activities from January 2007 to December 2009 included: Project Analysis and Planning Establishing the FIDEX Working Group Defining Forensic Exchange Methods and Opportunities Arizona Criminal Justice Commission (ACJC) Exchange Analysis Subgroup Activities Information Exchange Package Documentation (IEPD) Development and Publishing FIDEX Portal Planning and Development Pilot Testing Activities for Phoenix PD and Boston PD

FIDEX Timeline 2007 - 2009

Project Analysis, Planning and Working Group, January 2007 December 2007 Project needs analysis and planning, January 2008 Identify potential working group members for crime labs, laboratory information management systems (LIMS), law enforcement, and justice information sharing, February March 2007 Working group selection and meeting planning, April 2007 FIDEX Presentation by NIJ to the Global Justice Information Sharing Initiative (Global) Advisory Committee (GAC) Meeting Summary, April 2007 FIDEX working group portal designed and deployed, May 2007 First working group meeting to define data sharing needs and develop project goals, May 2007 o Guests and members represented GJXDM (NIEM), NLETC-NE, ACJC, JusticeTrax LIMS, Discussions with ACJC about information sharing, June 2007 IEPD development research and planning agreement developed with IJIS Institute, July 2007 Second working group meeting to review exchange concepts and review potential case submission and case disposition exchange opportunities, August 2007 o Guests and members represented NIJ, NIEM, ACJC, LIMS vendors, SEARCH, and IJIS o Presentations included JIEM, UCFs FINDER (now FDLE FLEX), DEML, IJIS Crime Lab Exchange Mapping Continued IEPD development planning with IJIS and ACJC, September December 2007 FIDEX data modeling committee, online meeting, December 2007

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The purpose of this meeting was to prioritize exchanges and identify the two documents that would be further refined into XML Schema (IEPDs).

ACJC Workflow Analysis and IEPD Planning, January 2008 December 2008 Crime Lab workflow and data exchange analysis meeting with ACJC, Phoenix, AZ, January 2008 o Attendees included representatives from the NIJ, NFSTC, ACJC, AZDPS Crime Laboratory, Maricopa County ICJIS Mesa PD, Scottsdale PD, Chandler PD, IJIS Institute, and contract developer Waterhole Software o Topics included: workflow analysis for state, county and local PD to crime Laboratory exchanges, case submission analysis and case disposition analysis IEPD development planning and business process analysis, February 2008 IEPD workflow analysis meeting in Phoenix, March 2008 o Attendees included representatives from the NIJ, NFSTC, ACJC, AZDPS Crime Laboratory, Maricopa County Courts, Mesa City Prosecutors Office, Mesa PD, Phoenix PD, Chandler PD, Tucson PD, IJIS Institute, JusticeTrax and contract developer Waterhole Software o Topics included: ACJC and NFSTC presentation of FIDEX to LEIM, May 2008 FIDEX Web tools and RMS integration for Phoenix PD pilot development analysis, June - July 2008 Case Disposition exchange meeting with Phoenix PD and JusticeTrax developers, July 2008 FIDEX Web Portal analysis submitted for team review, August 2008 AZDPS FIDEX concept paper developed and sent to ACJC partners, August 2008 FIDEX presented to Nlets Implementers Conference, September 2008 FIDEX Case Submission Exchange needs survey analysis and design by IJIS, November December 2008 o Objective to develop Case Submission Exchange related survey o Target groups will include state, county, and local crime laboratories

Case Submission and Case Disposition Exchange Analysis and Development - January 2009 December 2009 Continued analysis and discussions with ACJC subgroup, January 2009 FIDEX Case Submission survey raw data received, February 2009 o Survey results included: 79% indicated some form of a Laboratory Information Management System is in place; however, 87% still accept forensic requests via hand-written long form. 98% of respondents indicated that some percentage of their submissions require clarification from the case agent Development and communication about exchange methods, business model and related documentation for potential FIDEX pilot tests, February March 2009 o Arizona is considering using the Case Submission exchange for a pilot test with the DPS Lab and Glendale PD o The Boston PD is discussing the use of the Case Submission and the Case Disposition exchanges. o The Washington State Patrol talked with the FIDEX team about developing a toxicology exchange based on the FIDEX Case Submission Exchange Article on FIDEX in Public Safety Magazine, March 2009 The NFSTC, Waterhole Software, and IJIS Institute met with Arizona DPS and Phoenix PD to plan implementation the a FIDEX Case Submission Exchange pilot test, April 2009 Forensic Case Submission and the Forensic Case Disposition IEPDs were published on the NIEM Clearinghouse, March 2009 Waterhole Software developed and delivered concept for FIDEX Web Portal, April May 2009 Analysis and planning for Phoenix PD FIDEX pilot, May - June 2009

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Analysis for Boston PD FIDEX pilot and possible link to evidence software, June 2009 Waterhole Software met with Boston PD on July 28-29. The pilot test analysis and design was approved, and will link FIDEX Exchanges with their Evidence Tracker software, July 2009 Boston PD FIDEX portal pilot analysis and planning and development, August September 2009 FIDEX presented at National Information Exchange Model (NIEM) Training Conference in Baltimore, MD, October 2009 An online FIDEX Webinar was presented to the NIJ Information Led Policing TWG on Thursday, October 15th by Mike OBerry and Aaron Gorrell, October 2009 FIDEX contract developer Waterhole Software completed the integration of first FIDEX portal implementation, November 2009 o On November 18, 2009 Boston Police Department went live with FIDEX and a link to their Evidence Tracker software for case submission. o In this first-phase rollout, the criminologists are the primary users. Based on their requests, several minor enhancements have been added to the software. The Phoenix PD Crime Lab has received a server that will be configured for FIDEX forensic case submission, November 2009 Phoenix PD FIDEX pilot planning and development, November December 2009

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AppendixC
MainFIDEXWorkingGroup
1. Mary Ann Byrne Assistant Chief, Judicial System IRM, New Jersey State Courts 2. W. Mark Dale Director, Northeast Regional Forensic Institute 3. Frank Fitzpatrick Contract Subject Matter Expert, NFSTC 4. Simon Key President, JusticeTrax (LIMS) 5. Robin Jones Contract Program Manager, NFSTC 6. Richard MacKnight Contract Project Manager, NFSTC 7. Suzette McLeod Project Manager, Technology Services, IJIS Institute 8. Patti Nelson Program Manager, ACJC 9. Mike OBerry E-Solutions Program Director, NFSTC

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ArizonaFIDEXSubgroup
1. Sam Ali Project Manager, IJIS Institute 2. Steve Ballance ICJIS Business Team, Maricopa County 3. Theresa Busby Information Technology, Chandler PD 4. Dan Corsetti IT Manager, Administration Office of the Courts, Supreme Court 5. Rita Dyas Crime Lab Director, Chandler PD 6. Vince Figarelli DNA Section Manager, AZDPS 7. Steve Garrett Crime Lab Director, Scottsdale PD Crime Lab 8. Aaron Gorrell IJIS Service Provider - Waterhole Software 9. Todd Griffith Crime Lab Director, AZDPS 10. Joe Hindman IT Director, Scottsdale PD

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11. Brent Montgomery Phoenix PD Crime Lab 12. Tony Novitsky Deputy County Attorney, Maricopa County 13. Deb Rector Crime Lab Director, Mesa PD 14. Richard Roy Systems Administrator, JusticeTrax 15. Nancy Rutter ICJIS Business Team, Maricopa County 16. Susan Shankles Crime Lab Director, Tucson PD 17. Dave Spirck Information Technology, AZDPS 18. Tom Simonick, Crime Lab Director, Mesa PD 19. Brent Vermeer Crime Lab Director, Phoenix PD 20. Judy Welch Records Supervisor, Phoenix PD 21. Sally Wells Chief Assistant County Attorney, Maricopa County
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FIDEXWorkingGroupContactInformation
1. William Ford Visiting Scientist, Information and Sensor Technology Division, NIJ Phone: 202.353.9768 Mobile: 202.281.8837 william.ford@usdoj.gov 2. Richard MacKnight Senior Advisor, SPC NIJ Phone: 202.514.8948 Mobile: 202.957.5661 richard.macknight@usdoj.gov 3. Jim Douglas Systems Analyst, NLECTC-NE Phone: (315) 334-LEAF james.douglas@l-3com.com 4. Dr. William Tilstone Director of Training, NFSTC Phone: 727-549-6067 ext. 105 Bill.Tilstone@nfstc.org 5. Mike OBerry Training Technology Manager, NFSTC Phone: 727-549-6067 ext. 115 Mike.OBerry@nfstc.org 6. Robin Jones Contract Project Manager Home: 703-569-2090 Mobile: 571-241-6967 robinwilsonjones@yahoo.com

AppendixD

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7. Greg Hill Contract Project Advisor, NFSTC Direct Line: 727-562-7367 Mobile: 813-454-1599 ghill1402@hotmail.com 8. Patti Nelson Program Manager, ACJC Phone: 602-364-1146 pnelson@acjc.state.az.us 9. Simon Key President, JusticeTrax (LIMS) Phone: 480.222.8900 or 800.288.5467 simon.key@justicetrax.com 10. Robert OLeary Director, ECPI (or an ECPI member) Phone: (908) 995-9303 Mobile: (908) 763-1608 rjoleary@earthlink.net 11. Frank Fitzpatrick Project Manager, FQS-I Police Science Accreditation Program Phone: 949-857-5708 frankfitz@cox.net 12. Suzette McLeod Project Manager, Technology Services, IJIS Institute Phone: (703) 726-3666 Mobile: (703) 623-6808 suzette.mcleod@ijis.org 13. Susan Narveson Chief, Investigative and Forensic Sciences Division, NIJ Phone: (202) 305-4884 NarvesoS@ojp.usdoj.gov 14. W. Mark Dale Director, Northeast Regional Forensic Institute Phone: (518) 437-3791 WDale@uamail.albany.edu

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AppendixE
FIDEXLEAConceptPaper ArizonaDepartmentofPublicSafety

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