OTS is an electronic monitoring technology consisting of hardware, such  as an ankle bracelet (see fig. 2), used for collecting and transmitting data  on an individual’s location, and software for analyzing data collected from  the hardware device. NIJ Collaborated with a Variety of Stakeholders, but Earlier Manufacturer Involvement Could Have Expedited Development of the OTS Standard

NIJ collaborated with stakeholders by leveraging expertise from a broad  variety of criminal justice and technical experts. Participants in the OTS development  process include criminal justice practitioners from all levels of government  representing parole, probation, and pretrial services agencies. While the standards development process NIJ employed for developing  the OTS standard is consistent with the process outlined by ANSI, earlier  and ongoing inclusion of OTS manufacturers could have expedited  development of the OTS standard. For example,  OTS manufacturers could have better informed and facilitated  development of the OTS standard by providing insights on OTS  capabilities and limitations at the outset. While the OTS standard and associated testing methods remain under  development, coordination between NIJ and manufacturers has improved  since 2012. For example, through the second public comment period for  the draft standard, NIJ has communicated to the manufacturers that their  major concerns related to minimum performance requirements and  testing methods have been addressed. NIJ is currently in the final stages of OTS  standard development and plans to issue the standard by March 2016. Specifically, it has asked manufacturers to provide samples of their  equipment. Draft OTS Standard and Companion Guide Address Many Common Needs and Challenges Identified by Stakeholders

		Draft OTS Standard Addresses Common Needs; Performance Requirements Vary by Agency

NIJ’s draft OTS standard sets minimum performance standards that  address common operational and circumvention detection needs  identified by the 9 criminal justice agencies from which we collected  procurement and policy documents. Common Operational and Circumvention Detection Needs

The draft standard addresses common operational and circumvention  detection needs, such as location accuracy, the ability to obtain an  offender’s location on demand, programming “zones”—geographical  areas an offender is or is not to enter— and alerts to report device  tampering, among others. See appendix I for additional  information on specific requirements in the draft standard and summary  data on the extent to which the requirements met stakeholder needs. The OTS Standard’s Draft Companion Guide Addresses Potential Challenges and Other Considerations

Officials from the 10 criminal justice agencies we met with also identified  programmatic challenges with implementing offender tracking programs,  such as managing public expectations of what the technology can  achieve, as well as technical limitations that could affect the success of  their offender tracking programs. NIJ’s draft guide provides information  and guidance on these challenges and other considerations. In  recognition of the range of agencies, environments, resources, and  objectives of offender tracking, the draft guide does not offer “one size fits  all” solutions. According to officials, common misconceptions include the  beliefs that (1) officers are stationed at computers and watch the live  movement of offenders 24 hours a day, 7 days a week, and (2) offender  tracking technology allows officers to prevent bad behavior before it  happens. Investigating Crimes  Global Positioning System (GPS) data from  offender tracking systems (OTS) can be used  to help investigate and solve crimes. Workload. For example, the draft guide  provides information on common procurement processes and what to  look for in a vendor. The draft guide provides  information and guidance for how to mitigate these challenges. Officials from all 10 criminal justice agencies stated that  there are areas in their jurisdictions that lack sufficient cellular coverage  to allow devices to perform as designed. GPS signal reception.
Why GAO Did This Study

OTS is an electronic monitoring technology consisting of hardware, such as an ankle bracelet, used for collecting Global Positioning System (GPS) signals to determine an individual's location, and software for analyzing data collected from the hardware device. While demand for GPS-based electronic monitoring devices has increased, there are currently no standards that OTS devices are required to meet. In 2009, NIJ initiated development of a voluntary OTS standard and companion guide, which is expected to be published no later than March 2016. GAO was asked to review NIJ's approach for developing the OTS standard.
This report examines the extent to which (1) NIJ collaborated with stakeholders in developing the standard, and (2) the standard and guide address stakeholder needs and challenges. GAO analyzed NIJ's draft OTS standard, companion guide, and standard development process. To obtain perspectives on the standard development process and OTS needs and challenges, GAO interviewed stakeholders including NIJ officials, practitioners and experts who developed the standard, criminal justice and victims' associations, manufacturers, and officials from a nongeneralizable sample of 10 criminal justice agencies that employ OTS. GAO selected the 10 criminal justice agencies based upon a combination of factors, including ensuring a range of federal, state, and local jurisdictions, among other things.

What GAO Found

The National Institute of Justice (NIJ) collaborated with a variety of criminal justice and technical experts to develop a draft standard for offender tracking systems (OTS), but earlier involvement of manufacturers could have expedited its development. For example, the committee that developed the draft standard included practitioners spanning all levels of government and program areas such as pretrial, probation, and parole services and technical experts with backgrounds in developing test methods for performance standards. NIJ invited manufacturers to provide input through a workshop held in May 2011 and two subsequent public comment periods. GAO found that earlier and ongoing involvement of OTS manufacturers could have better informed and facilitated development of the OTS standard by, for example, providing insights on OTS capabilities and limitations at the outset. Coordination has improved since 2012, and manufacturers' major concerns have been addressed.
Global Positioning System (GPS) Offender Tracking System
NIJ's draft OTS standard and guide address many common stakeholder needs and challenges. The draft standard includes requirements for common operational and circumvention detection needs. For example, requirements for location accuracy and the ability to provide alerts when an offender tries to remove the device or is at a prohibited location are included in the standard. In addition, the draft guide provides information and guidance related to challenges identified by the criminal justice agencies GAO met with as well as other considerations for implementing an OTS program. These challenges include
misconceptions among the public and victims that OTS allows agencies to prevent bad behavior before it happens;
developing appropriate protocols to respond to OTS alerts, such as those for tampering with the tracking device; and
workload issues, such as whether there is sufficient staff or resources to respond to OTS alerts 24 hours a day, 7 days a week.
In recognition of the range of agencies, resources, and objectives of offender tracking, the guide provides information and guidance, and does not offer “one size fits all” solutions.