Use and Management of Criminal History Record Information: A Comprehensive Report... U.S. Department of Justice

172 Pages·1993·45.1 MB·English

by  United States Department of Justice

Bureau of Justice Statistics
Use and Management of
Criminal History Record Information:
A Comprehensive Report
Laws and policies
New technologies
Interstate. [Identification Index
Federal initiatives and legislation
Criminal ‘Justice Information Policy
COMPLETED
BLANK PAGE
Bureau of Justice Statistics BUS technical reports Courts Law Enforcement Management
reports NSeerwi esd ircercitmieosn:s Rfeopro rNtC S,of NaC fJi.e1ld1 5t5e7st1,, 9/89 BJS bulletins and Administrative Statistics
NCy 104615, 4/87 Felony sentences in State courts, 1990, LEMAS, 1990: Data for individual agencies
(Revised November 19903) NCJ. 140186, 9/93 with 100 of more officers, NCJ 134436,
Call toll-free 800-732-3277 to order BUS Corrections Pretiial release of felony defendants, 1990, 9/92
reports, to be added to one of the BUS NCJ: 199560, 11/92
mailing lists, or to speak to a reference BJS bulletins and special reports Prosecutors in State courts, 1990. BJS bulletins and special reports
specialist in statistics at the Bureau of Cap1i1t/a9l3 punishment 1992, NCJ. 14503), PreNtCrJi.al 1r3e4l6e0a0s,e 3o/f9 2f elony defendants, 1988. Ceangseunsc ioefs St1a9t9e2 , aNnCdJ .l oc1a4l2 97l2a,w e7n/f93o rcement
Justice Statistics Clearinghouse, HIV in U.S. prisons and jails, NCJ. 143292, NCJ: 127202, 2/91 Drug enforcement by police and sheriffs’
P.O. Box 179, Dept. BJS-236, 9/93 Felony sentences in State courts, 1986, departments, 1990, NCJ. 134505, 5/92
Annapolis Junction, MD 20701-0179. Prisoners in 1992, NCJ. 141874, 5/93 NCJ: 126923, 12/90 State and local police departments, 1990,
For drugs and crime data, call the Drugs Drug enforcement and treatment in Criminal devense for the poor, 1986, NCJ- 133284, 2/92
& Crime Data Center & Clearinghouse, prisons, 1990, NCJ. 134724, 7/92 NCJ. 112019, 9/88 Sheriffs’ departments, 1990, NCJ. 133283,
1600 Research Bivd., Rockville, MD Women in prison, NCJ 127991, 4/91 BJS special reports Pol2i/c9e2 departments in large cities, 1987,
20850, toll-free 800-666-3332. VioNlGeJn-t 1S2t4a1t3e3 ,p r7i/s9o0n ers and their victims. Murder in families, NCJ. 143498, 9/93 NCJ- 119220, 8/89
«B JLSa w maeinnftoaricnesm entth esree pomratisl ing lists: PRreicsiodni viruslme voifo lpartiosrosn, erNsC J.r el1e2a0s3e4d4 , in1 21/98893 . MReucrNidCdJei-rv i1is4nm0 6l1ao4rf,g ef e3u/lr9ob3n asn onc oupnrtoibeast,i on1,9 88, Proafgielen cioef sS,t a1t9e8 7a,n dN ClJo.c al1 13l9a4w9 ,e n3f/o8r9c ement
« Federal statistics NCJ- 116261, 4/89 1986-89, NCJ.134177, 2/92 Drugs & crime
« Drugs and crime data Drug use and crime: State prison inmate Felony case processing in State courts,
survey, 1986, NCJ-111940, 7/88
« Justice expenditure and employment 1986, NCJ-121753, 2/90 Drugs, crime, and the justice system:
Time served in prison and on parole, 1984.
¢a¢ nBPdrU iScv raibcmuyil nlaaetlni dn jsu sseatcinucdre i tsiypn efocofir amclar tiimroiennp aolrp toshl iisctyo ries ProNNfCCiJJl.e- o11f00 98S95t24a64t,,e 11p/2r8/i88s 7o n inmates, 1986. |N1C9 J9-0 : d14eN1fa8et7ni2do,na an5lt/ s9 P3r ient rliaalr geR euprobratni ngc ouPnrtoigesr,a m. CatoTAane lcnohaigtnll iieocognaafall l s dearlrpeueppcgeot nreadtdn,i dxF ,Ne CadJleNc.rCo aJh1l.o3 l31 p63u5a9b2b5,lu7 is8ce5,a./ t 96i3/o 9n3s
¢ CStoartree cfteiloonnsy courts ImpNCrJi-s o1n0m3e9n6t7, i2n/ f87o ur countries. NatNiCoJn-a l1 3J5u9d4i5c,i al1 /9R3e porting Program, 1988. DrNuCgJs- a1n3d9 56c2r,i me6 /9f3a cts: 1992, NCJ. 139561,
* National Crime Victimization Survey Prisoners at midyear 1993 (press release). The1 98p8r,o sNeCcJu.t1i3o0n9 1o4f, fe2l/o9n2y arrests: 3/93
¢ Sourcebook of Criminal Justice NCJ- 143960, 9/93 1987, NCJ- 124140, 9/90 State drug resources: 1992 national
Statistics (annual) Correctional populations in the U.S.: Felons sentenced to probation in State directory, NCJ. 134375, 5/92
NSiCnJg len ucmobpeire s too fo rrdeepro.r tsP oasrteag ef ree;a nusde Sur11v9999e01y,, oNNfCC JJS..t at11e34 4297p42r69i,,s on87 //99i32n mates, 1991, Felc1oo9un8r8yt, sd,Ne CfJ1e9.n8 d61,a2 n2tN3sC8J 5.,i n1 42l/4a990r4 g4e, ur1b1a/n9 0 counties, FedNeCrJa-l 1d2r27u1g5 ,d at4/a9 0f or national policy.
handling are charged for bulk orders NCJ- 136949, 5/93 Profile of felons convicted in State courts, Federal justice statistics
of single reports For single copies of Census of State and Federal correctional 1986, NCJ-120021, 1/90
multiple titles, up to 10 titles are free; facilities, 1990, NCJ. 137003, 6/92 Felony laws o! 50 States and the District of Federal criminal case processing, 1962-91,
11-40 titles $10; more than 40, $20; Prisons and prisoners in the United States. Columbia, 1986, NCJ. 105066, 2/88, $14 60 with preliminary data for 1992, NCJ.144526,
NCJ- 137002, 4/92 11/93
libraries call for special rates. National Corrections Reporting Program: State court model statistical dictionary: Compendium of Federal justice statistics:
Public-use tapes of BJS data sets 1990, NCJ-141879, 5/93 S1sutp peldeitmieonnt, , NCNJC-J6 23928032,6 , 9/98/0,8 5 $10.60 1990, NCJ. 143499, 9/93
and other criminal justice data are 1989, NCJ- 138222, 11/92 1989, NCJ- 134730, 5/92
available from the National Archive 1988, NCJ- 134929, 4/92 Privacy and security The Federal civil justice system (BJS
State and Federal institutions, 1926-86 bulletin), NCJ- 104769, 8/87
of Criminal Justice Data (formerly
CJAIN), P.O. Box 1248, Ann Arbor, Mi Race of prisoners admitted, NCJ. 125618. Criminal justice information policy: Federal offenses and offenders
48106 (toll-free 800-999-0960). His6t/o9r1i cal statistics on prisoners. Usere caonrdd miannfoargmeamtieonnt: oAf ccroimmpirnaelh ehnissitvorey BJS special reports
NCJ-111098, 6/88 report, NCJ-143501, 11/93 Prosecuting criminal enterprises: Feceral
National Crime Victimization Survey of criminal history information offenses and offenders, NCJ-14252,,
Survey Census of jails and survey systems, 1992, NCJ. 143500, 11/93 11/93
of jail inmates Report of the National Task Force on Federal sentencing in transition, 1986-90,
Highlights from 20 years of surveying crime Criminal History Record Disposition NCJ- 134727, 6/92
victims: The National Crime Victimization BJS bulletins and special reports Reporting, NCJ. 135836, 6/92 Immigration offenses, NCJ. 124546, 8/90
Survey, 1973-92, NCJ- 144525, 10/93 Jai inmates, 1992, NCJ-143284, 8/93 Attorney General's program for improving Federal criminal cases, 1980-87.
Criminal victimization in the U.S.: Drunk driving: 1989 Survey of Inmates the Nation's criminal history records: NCJ-118311, 7/89
1991 (final), NCJ-139563, 1/93 of Local Jails, NCJ-134728, 9/92 BJS implementation status report, Drug law violators, 1980-86, NCJ- 111763.
1973-90 trends, NCJ- 139564, 1/93 Women in jail, 1989, NCJ. 134732, 3/92 NCJ- 134722, 3/92 6/88
Crime and older Americans information Drugs and jail inmates, NCJ. 130836, 8/91 identifying felons who attempt to Pretrial reiease and detention: The Bail
package NCJ 140091, 4/93, $15 Profile of jail inmates, 1989. purchase firearms, NCJ.128131, 3/91, Reform Act of 1984, NCJ-109929, 2/88
Crime victimization in city, suburban, NCJ- 129097, 4/91 $9.90
and rural areas, NCJ- 195943, 6/92 Population density in local jails, 1988. Assessing completeness and accuracy of General
School crime, NCJ. 131645, 9/91 NCJ 122299, 3/90 criminal history record information:
Teenage victims, NCJ- 128129, 5/91 Census of local jails, 1988. Audit guide, NCJ. 133651, 2/92 BJS bulletins and special reports
Female victims of violent crime. NCJ-121101, 2/90 Forensic DNA analysis: issues. BJS telephone contacts, ‘94, NCJ-143707,
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TheN CJs.e as1o1n14a5l7i,t y 3/o8f9 crime victimization. CensNuCsJ -o1f3 0l7oc5a9l- ja1i3ls0,7 6129,8 3:9/ 91S elected StrNaCtJe-g i1e1s5 3f3o9r, i5m/p8r9o ving data quality. TInrtaecrkniantgi onoaflf encdreirmse, ra1t9e8s8,, NNCCJJ..112190876716., 56//8981
NCJ-111033, 6/88 findings, methodology, summary tables, Public access to criminal history record BJS discussion papers.
Victimization and fear of crime: World vol. V, NCJ-112795, 11/88 information, NCJ-111458, 11/88 Performance measures for the criminal
perspectives, NCJ-93872, 1/85, $9.15 Juvenile records and recordkeeping justice system: Papers from the BJS-
The National Crime Survey: Working papers, Probation and parole systems, NCJ.112815, 11/88 Princeton Project, NCJ. 143505, 10/93
Vol. |, History, NCJ-75374 82 Automated fingerprint identification Local prosecution of organized crime: The
Vol. ll, Methodology, NCJ-90307, 12/84, BJS bulletins and special reports systems: Technology and policy issues. use of State RICO statutes, NCJ. 143502,
$9 90 Probation and parole: NCJ- 104342, 4/87 10/93
BUS bulletins 1990, NCJ. 133285, 11/91 Criminal justice “hot” files, NCJ. 101850 Felony sentencing and jail characteristics,
Criminal victimization 1992, NC J-144776, 1989, NCJ-125833, 11/90 12/86 NCJ- 142523, 6/93
Cri1m1e/9 3 ong the Nation's households, 1992, RecNiCdJi-v i1s0m4 91o6f, y5o/u8n7g parolees. Exp$e1r1t. 50w itness manual, NCJ-77927, 9/8), UsiNantgi oNnIalB RSIn cdiadtean tt-oB aasnealdy zRee pvoirotleinntg cSryimset:e m
NCJ- 143288, 9/93 BJS/SEARCH conference proceedings: (Technical Report), NCJ- 144785, 11/93
The crime of rape, NCJ-96777, 3/85 Juvenile corrections National conference on improving the Directory of automated criminal justice
Measuring crime, NCJ-75710, 2/81 Children in custody: Census of public and quality of criminal history information information systems, 1993: Vol. 1, Law
BJS special report: private juvenile detention, correctional, NCJ- 133532, 2/92 enforcement, NCJ-142645,9/93, $5
Elderly victims, NCJ- 138330, 10/92 and shelter facilities, 1975-85, NCJ. 114065. Criminal justice in the 1990's: The future Vol. 2, Corrections, courts, probation/
Handgun crime victims, NCJ. 123559, 7/90 6/89 of information management. parole, prosecution, NCJ- 142646, 9/93, $4
Black victims, NCJ- 122562, 4/90 Survey of youth in custody, 1987 (special NCJ- 121697, 5/90, $7.70 Sourcebook of criminal justice statistics,
Hispanic victims, NCJ-120507, \/90 report), NCJ-113365, 9/88 Juvenile and adult records: One syetem, 1992, NCJ- 143496, 9/93, $6
The redesigned National Crime Survey: one record? NCJ-114947, 1/90 BJS statistical programs, FY 1993,
MotSoerle cvteehdi clnee wt hedfatt,a ,N CNJC-J -11019497784,6 , 3/81/88 9 Expenditure and employment OpNeCnJ -v s1. 13c5o6n0f,i de1n/t8i8a l records. StaNtCeJ -j u1s3t9i3c7e3 ,s ou1/r9c3e book of statistics and
RViooblbeentr y crviimcet imtsr,e ndNsC,J - NC1J0-4613087,2 147/,8 7 11/87 Jus1t9i9c0e (eBxUpSe nbduillteutrine) , aNnCdJ -e1m3p5l7o7y7m,e n9t/:92 Cleogmispleatnidoin:u m of State privacy and security Viorleesneta rccrhi,m e NCiJn- t h1e3 79U.9S1.,, 9/N9C2J - 127855, 3/91
Violent crime by strangers and non- 1988 (full report), NUJ- 125619, 8/91 1992, NCJ-137058, 7/92 BJS data report, 1989, NCJ-121514, 1/91
Presvteranntgienrgs , doNmCeJs-t1i0c3 70vi2o,l en1c/e87 against JusE x.tircaec tvsa,r ia1b9l8e4 , pa'8s5s, -8t6h,r oNuCgJh- 1d2a4t1a3,9 ,1 9980/:9 1 199h2ar df ulclo prye,p oNrtC J-(11 530901p2p6,, m$i1c8r4o)f,i ch7e/ 92$ 2, PubBMliiibcclraiotofigiorcnahspe h yol,fi brBTaJr8SyO,,0 3P10R908O153-308,09 1. 45/,9 0,5 /$910,7 .$501 90
women, NCJ- 102037, 8/86 Anti-drug abuse formula grants (BJS
Cri3/m8e6 prevention measures, NCJ- 100438, technical report), NCJ- 133018, 3/92 See order form PubMliiccraotfiiocnhse olfi brBaJrSy,, P1R9O731-08041 2, 10/86, $203
The use of weapons in committing crimes, Bibliography, TBO30012, 10/86, $17.50
NCJ-99F... 1/86 on last page Report to the Nation on crime and justice:
Second edition, NCJ- 105506, 6/86 h
U.S. Department of Justice
Office of Justice Programs
Bureau ofJ ustice Statistics
=
Use and Management of
Criminal History Record Information:
A Comprehensive Report
A Criminal Justice Information Policy Report
November 1993, NC J-143501
U.S. Department of Justice
Office of Justice Programs
Bureau of Justice Statistics
Lawrence A. Greenfeld
Acting Director
Acknowledgements. This report was prepared by SEARCH, The National Consortium for
Justice Information and Statistics, Dr. Francis J. Carney Jr., Chairman, and Gary R. Cooper,
Executive Director. The project director was Sheila J. Barton, Director, Law and Policy
Program. The report was written by Robert R. Belair, SEARCH General Counsel, and Paul L.
Woodard, SEARCH Senior Counsel. Assistance on some sections of the report was provided
by Virgil L. Young Jr., Section Chief, and Emmet A. Rathbun, Assistant Section Chief,
Criminal Justice Information Services Division, Federal Bureau of Investigation. Support was
provided by Jane L. Bassett, Publishing Assistant; Twyla R. Cunningham, Manager, Corporate
Communications; Robert L.. Marx, Senior System Specialist; and Teresa E. Nyberg, Executive
Secretary. The project was conducted under the direction of Carol G. Kaplan, Assistant Deputy
Director, Bureau of Justice Statistics.
Report of work performed under BJS Grant No. 92-BJ-CX-K012, awarded to SEARCH
Group, Inc., 7311 Greenhaven Drive, Suite 145, Sacramento, California 95831. Contents of
this document do not necessarily reflect the views or policies of the Bureau of Justice Statistics
or the U.S. Department of Justice.
Copyright © SEARCH Group, Inc. 1993
The U.S. Department of Justice authorizes any person to reproduce, publish, translate or
otherwise use all or any part of the copyrighted material in this publication with the exception
of those items indicating they are copyrighted or reprinted by any source other than SEARCH
Group, Inc.
Foreword
The Bureau of Justice Statistics
is pleased to publish Use and
Management of Criminal
History Record Information: A
Comprehensive Report. The
report is the first descriptive
review of the Nation’s criminal
history information systems and
discusses in nontechnical terms
the complex, interrelated
network of local, State and
Federal information systems
that provide criminal history
records to both criminal justice
and noncriminal justice users.
The report is the latest in BJS’s
efforis to assist States in
improving the quality of
criminal history record
information and to ensure that
accurate data is readily available
for operational and research
purposes. We hope that the
report will be of value to
policymakers and practitioners
addressing the critical issues
relating to criminal history
record information which will
accompany expanded
development of systems for thie
interstate exchange of this
information.
Lawrence A. Greenfeld
Acting Director
Bureau of Justice Statistics
ili
BLARIS PAGE
iV
Contents
Glossary ix Chapter II 19 Background
Overview of State-level systems
Introduction Purpose of this report existing 20 Federal-level systems
a
Background criminal history
Repositories of criminal record systems
history record information
—-State systems Section 1 Establishment of early
—Federal systems Evolution of police departments
Timely criminal history criminal history Early identification and
record information issues record systems recordkeeping systems
—Data quality Efforts to establish criminal history
—Decentralized recordkeeping record systems
—New technologies —LEAA efforts to
Content of this report establish State systems
GMPPOMWO
—FBI efforts to establish
Chapter | on Background Federal systems
How the
criminal justice Section 2 Background
system works information Identification information
and how it maintained in —Personal description
uses criminal the Nation's —Fingerprints
history records criminal history Criminal history information
record systems Juvenile record information
Section 1 Criminal codes and procedures Other information
Typical State Police agencies —lInterim dispositions
criminal justice Local detention facilities —Felony flags
system Prosecution agencies —Misdemeanor data
structure Courts Master name indexes
Corrections agencies —Contents, usage
—Number of records indexed
Section 2 Investigation
Typical State Arrest Section 3 Background
criminai justice Booking The current Number of records
process Initial court appearance status of the —State records
Preliminary hearing Nation's —Federal records
Pretrial release decision criminal history Extent of automation
Prosecutor review record systems —State criminal history files
Grand jury indictment —State criminal fingerprint files
Arraignment —Federal files
Trial court action Reporting of information
Appeal to the repositories
Sentencing —Types of information reported
Correctional supervision —Reporting requirements |
—Time frame in which |
Section 3 Background reporting takes place
How Police uses Access methods for
criminal justice Pretrial release uses authorized requestors
practitioners Prosecutor uses —Criminal justice inquiries
use criminal Court uses —Noncriminal justice inquiries
history records —For bail, pretrial and trial decisions —Computer searches
—For sentencing decisions Response times
—For probation and parole decisions
Corrections uses
Types of information needed
Time frames within which
information is needed
Section 4 29 Accuracy and completeness Section 2 Background
The product 31 Linking of arrest and disposition data Automated —Problems with manual
of the 31 —Current practice fingerprint fingerprint processing
repositories: 31 —Case-tracking systems processing Fingerprint image production
The criminal 32 —Charge-tracking systems and transmission
history record 32 Content and format —Live-scan devices
32 —Differances in content —Card-scan devices
33 — Differences in format and Use of automated fingerprint
terminology identification systems to search files
33 —Problems in deciphering records —AFIS benefits
33 —Calls for reform —State AFIiSs
—Federal AFIS
Chapter Ill 35
Overview of Chapter V Background
laws regulating National
criminal history criminal history
record systems record checks
and the
Section 1 Constitutional doctrines interstate
Constitutional Common lew doctrines Identification
and common Index
law doctrines
Section 1 50 Current practice
Section 2 Federal statutes and regulations Maintenance 50 —Fingerprint submissions
Statutory and —Statutes and use of 50 —Disposition submissions
regulatory —Regulations current FBI 51 -—-Extent of autornation
requirements State statutes ano regulations files 51 Authorized users of data
52 Terminal access to FBI files
Section 3 Federal data quality regulations 52 —Criminal justice inquiries
Two key —Completeness provisions 52 —Noncrimina' justice inquiries
issues — data —dAccuracy provisions
quality and State data quality laws and strategies Section 2 52 Background
dissemination —Mandatory reporting requirements The Interstate 53 Use of Ill for criminal justice purposes
—Transaction log requirements identification 57 Use of Ill for noncriminal
—Other requirements Index justice purposes
—Data quality strategies 57 —Revision of State laws and
Dissemination of criminal policies necessary
history record information 58 —Uniform dissemination
—Dissemination for standard proposed
criminal justice purposes 58 —Pilot test underway
—Dissemination for noncriminal
justice purposes Section 3 59 Benefits of Ill participation
—Dissemination trends lil system 61 Benefits of NFF participation
—Statutory dissemination impact 61 —Duplicate files eliminated
policies in the early 1990s 61 —Uniform dissemination standard
62 —Faster rasponse times
Chapter IV Background 62 Burdens of Ill participation
The impact 62 Expected overall impact
of new
technologies Section 4 62 Background
The proposed 62 Emergence of the Ill compact
Section 1 Automated arrest reporting lll compact 63 —Compact advantages
Automated —Problems with manual reporting 63 —Compact development status
reporting to the —Automation aids in arrest reporting 63 Compact provisions
repositories —Benefits
Automated disposition reporting
BREREE
—Reporting by local prosecutors,
courts
& —Reporting by State courts systems
44 —Reporting by State corrections
45 —Benefits
vi
Cnapter VI 65 Background Appendix 8 96 Sample criminal history record
Federal formats: Florida, Hawaii, Utah,
initiatives Virginia
and criminal
history records Appendix 9 110 Federal Bureau of Investigation/
Bureau of Justice Statistics
Section 1 IAFIS Recommended Voluntary Reporting
FBI system CJIS Division Standards for Improving the Quality
upgrades NCIC 2000 of Criminal History Record
Short-term goals Information
Section 2 Background Appendix 10 112 Overview of State criminal
Federal Telephone checks history record systems, 1992
database for Felon database
identifying FBI record system enhancement Appendix 11 115 Number of subjects (individual
felons Advances in biometric technology offenders) in State criminal history
file, 1984, 1989 and 1992
Section 3 BJS criminal history record
Federal grant improvement program Appendix 12 118 Number of final dispositions reported
programs and —Purposes for using grants to State criminal history repository,
related —Data quality, system 1983, 1989 and 1992
initiatives improvement strategies
—Status of the program Appendix 13 120 Automation of master name index
BJA block grant set-aside program and criminal history file, 1989 and
—Fund guidelines 1992
Reporting alien convictions to INS
FBI/BJS voluntary reporting Appendix 14 123 Arrest records with fingerprints, 1989
standards and 1992
Section 4 Appendix 15 126 Notice to State criminal history
The Brady Bill repository of release of arrested
persons without charging, 1989 and
1992
Appendix 1 73 Statutes making possession of
a firearm by a convicted Appendix 16 128 Average number of days to process
felon a criminal offense arrest data submitted to State
criminal history repository, 1989 and
Appendix 2 77 Statutes requiring or permitting 1992
prior criminal records to be
considered in bail decisions Appendix 17 131 Average number of days to process
disposition data submitted to State
Appendix 3 80 Statutes authorizing sentencing criminal history repository, 1989 and
of persistent recidivists to 1992
enhanced terms as career
criminals or habitual criminals Appendix 18 134 Procedures employed by State
criminal history repository to
Appendix 4 83 Statutes providing for upgraded encourage complete arresi and
charges for offenders with prior disposition reporting, 1992
convictions
Appendix 19 137 Methods used to link disposition
Appendix 5 86 Statutes providing for enhanced information to arrest/charge
sentences for offenders with prior information on criminal history record,
convictions 1992
Appendix 6 89 Statutes authorizing consideration of Appendix 20 140 Data quality audits of State criminal
criminal history in correctional history repository, 1992
classification and supervision
Appendix 21 143 Interstate and Federal-State
Appendix 7 93 Statutes providing that parole Compact on the Exchange of
eligibility shall or may be affected by Criminal History Records for
prior convictions Noncriminal Justice Purposes
Vii