98-19092. Criminal Intelligence Sharing Systems; Policy Clarification  

  • [Federal Register Volume 63, Number 138 (Monday, July 20, 1998)]
    [Proposed Rules]
    [Pages 38765-38766]
    From the Federal Register Online via the Government Publishing Office [www.gpo.gov]
    [FR Doc No: 98-19092]
    
    
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    DEPARTMENT OF JUSTICE
    
    28 CFR Part 23
    
    [OJP (BJA)-1177]
    RIN 1121-ZB14
    
    
    Criminal Intelligence Sharing Systems; Policy Clarification
    
    AGENCY: Bureau of Justice Assistance (BJA), Office of Justice Programs 
    (OJP), Justice.
    
    ACTION: Proposed clarification of policy.
    
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    SUMMARY: The current policy governing the entry of identifying 
    information into criminal intelligence sharing systems requires 
    clarification. This policy clarification is to make clear that the 
    entry of individuals, entities and organizations, and locations that do 
    not otherwise meet the requirements of reasonable suspicion is 
    appropriate when it is done solely for the purposes of criminal 
    identification or is germane to the criminal subject's criminal 
    activity. Further, the definition of ``criminal intelligence system'' 
    is clarified. While this clarification is not a rulemaking for the 
    purposes of the Administrative Procedure Act, 5 U.S.C. 553, BJA is of 
    the opinion that this clarification is significant enough to warrant 
    public comment.
    
    DATES: Public comment is due by September 18, 1998. Comments may be 
    faxed to (202) 307-1419, e-mailed to fisheral@ojp.usdoj.gov,'' or 
    mailed to the Office of the General Counsel, 810 7th Street NW, 
    Washington, DC, 20531.
    
    FOR FURTHER INFORMATION CONTACT: Paul Kendall, General Counsel, Office 
    of Justice Programs, 810 7th Street NW, Washington, DC 20531, (202) 
    307-6235.
    
    SUPPLEMENTARY INFORMATION: The operation of criminal intelligence 
    information systems is governed by 28 CFR Part 23. This regulation was 
    written to both protect the privacy rights of individuals and to 
    encourage and expedite the exchange of criminal intelligence 
    information between and among law enforcement agencies of different 
    jurisdictions. Frequent interpretations of the regulation, in the form 
    of policy guidance and correspondence, have been the primary method of 
    ensuring that advances in technology did not hamper its effectiveness.
    
    [[Page 38766]]
    
    Use of Identifying Information
    
        28 CFR 23.3(b)(3) states that criminal intelligence information 
    that can be put into a criminal intelligence sharing system is 
    ``information relevant to the identification of and the criminal 
    activity engaged in by an individual who or organization which is 
    reasonably suspected of involvement in criminal activity, and * * * 
    [m]eets criminal intelligence system submission criteria.'' Further, 28 
    CFR 23.20(a) states that a system shall only collect information on an 
    individual if ``there is reasonable suspicion that the individual is 
    involved in criminal conduct or activity and the information is 
    relevant to that criminal conduct or activity.'' 28 CFR 23.20(b) 
    extends that limitation to collecting information on groups and 
    corporate entities.
        In an effort to protect individuals and organizations from the 
    possible taint of having their names in intelligence systems (as 
    defined at 28 CFR Sec. 23.3(b)(1)), the Office of Justice Programs has 
    previously interpreted this section to allow information to be placed 
    in a system only if that information independently meets the 
    requirements of the regulation. Information that might be vital to 
    identifying potential criminals, such as favored locations and 
    companions, or names of family members, has been excluded from the 
    systems. This policy has hampered the effectiveness of many criminal 
    intelligence sharing systems.
        Given the swiftly changing nature of modern technology and the 
    expansion of the size and complexity of criminal organizations, the 
    Bureau of Justice Assistance (BJA) has determined that it is necessary 
    to clarify this element of 28 CFR Part 23. Many criminal intelligence 
    databases are now employing ``Comment'' or ``Modus Operandi'' fields 
    whose value would be greatly enhanced by the ability to store more 
    detailed and wide-ranging identifying information. This may include 
    names and limited data about people and organizations that are not 
    suspected of any criminal activity or involvement, but merely aid in 
    the identification and investigation of a criminal suspect who 
    independently satisfies the reasonable suspicion standard.
        Therefore, BJA issues the following clarification to the rules 
    applying to the use of identifying information. Information that is 
    relevant to the identification of a criminal suspect or to the criminal 
    activity in which the suspect is engaged may be placed in a criminal 
    intelligence database, provided that (1) appropriate disclaimers 
    accompany the information noting that is strictly identifying 
    information, carrying no criminal connotations; (2) the identifying 
    information may not be used as an independent basis to target a subject 
    for investigation or to establish reasonable suspicion of involvement 
    in criminal activity; and (3) the individual who is the criminal 
    suspect identified by this information otherwise meets all requirements 
    of 28 CFR Part 23. This information may be a searchable field in the 
    intelligence system.
        For example: A person reasonably suspected of being a drug dealer 
    is known to conduct his criminal activities at the fictional 
    ``Northwest Market.'' An agency may wish to note this information in a 
    criminal intelligence database, as it may be important to future 
    identification of the suspect. Under the previous interpretation of the 
    regulation, the entry of ``Northwest Market'' would not be permitted, 
    because there was no reasonable suspicion that the ``Northwest Market'' 
    was a criminal organization. Given the current clarification of the 
    regulation, this will be permissible, provided that the information 
    regarding the ``Northwest Market'' was clearly noted to be non-criminal 
    in nature. For example, the data field that ``Northwest Market'' was 
    entered in could be marked ``Non-Criminal Identifying Information,'' or 
    the words ``Northwest Market'' could be followed by a parenthetical 
    comment such as ``This organization has been entered into the system 
    for identification purposes only--it is not suspected of any criminal 
    activity or involvement.'' ``Northwest Market'' could not become the 
    target of an investigation solely on the basis of the information 
    provided in the comment field on the suspected drug dealer. Independent 
    information would have to be obtained as a basis for the opening of an 
    investigative file or the submission of intelligence information, based 
    on reasonable suspicion, on ``Northwest Market.'' Further, the fact 
    that other individuals frequent ``Northwest Market'' would not provide 
    a reasonable suspicion determination for those other individuals.
    
    The Definition of a ``Criminal Intelligence System''
    
        The definition of a ``criminal intelligence system'' is given in 28 
    CFR 23.3(b)(1) as the ``arrangements, equipment, facilities, and 
    procedures used for the receipt, storage, interagency exchange or 
    dissemination, and analysis of criminal intelligence information . . . 
    .'' Given the fact that cross-database searching techniques are now 
    common-place, and given the fact that multiple databases may be 
    contained on the same computer system, BJA has determined that this 
    definition needs clarification, specifically to differentiate between 
    criminal intelligence systems and non-intelligence systems.
        The comments to the 1993 revision of 28 CFR Part 23 noted that 
    ``[t]he term `intelligence system' is redefined to clarify the fact 
    that historical telephone toll files, analytical information, and work 
    products that are not either retained, stored, or exchanged and 
    criminal history record information or identification (fingerprint) 
    systems are excluded from the definition, and hence are not covered by 
    the regulation * * *.'' 58 FR 48448-48449 (Sept. 16, 1993.) The 
    comments further noted that materials that ``may assist an agency to 
    produce investigative or other information for an intelligence system * 
    * *'' do not necessarily fall under the regulation. Id.
        The above rationale for the exclusion of non-intelligence 
    information sources from the definition of ``criminal intelligence 
    system,'' suggests now that, given the availability of more modern non-
    intelligence information sources such as the Internet, newspapers, 
    motor vehicle administration records, and other public record 
    information on-line, such sources shall not be considered part of 
    criminal intelligence systems, and shall not be covered by this 
    regulation, even if criminal intelligence systems access such sources 
    during searches on criminal suspects. Therefore, criminal intelligence 
    systems may conduct searches across the spectrum of non-intelligence 
    systems without those systems being brought under 28 CFR Part 23. There 
    is also no limitation on such non-intelligence information being stored 
    on the same computer system as criminal intelligence information, 
    provided that sufficient precautions are in place to separate the two 
    types of information and to make it clear to operators and users of the 
    information that two different types of information are being accessed. 
    Such precautions should be consistent with the above clarification of 
    the rule governing the use of identifying information. This could be 
    accomplished, for example, through the use of multiple windows, 
    differing colors of data or clear labeling of the nature of information 
    displayed.
        Additional guidelines will be issued to provide details of the 
    above clarifications as needed.
    Richard H. Ward, III,
    Director, Bureau of Justice Assistance.
    [FR Doc. 98-19092 Filed 7-17-98; 8:45 am]
    BILLING CODE 4410-18-P
    
    
    

Document Information

Published:
07/20/1998
Department:
Justice Department
Entry Type:
Proposed Rule
Action:
Proposed clarification of policy.
Document Number:
98-19092
Dates:
Public comment is due by September 18, 1998. Comments may be faxed to (202) 307-1419, e-mailed to ``fisheral@ojp.usdoj.gov,'' or mailed to the Office of the General Counsel, 810 7th Street NW, Washington, DC, 20531.
Pages:
38765-38766 (2 pages)
Docket Numbers:
OJP (BJA)-1177
RINs:
1121-ZB14
PDF File:
98-19092.pdf
CFR: (1)
28 CFR 23