IAFIS is a national, computerized system for storing, comparing, and  exchanging fingerprint data in a digital format. 1). That is, the FBI’s goal is to achieve  electronic (paperless) processing of all fingerprint data—and to provide a  response within 2 hours to users who submit criminal fingerprints  electronically. Maximizing the benefits of rapid responses under IAFIS  depends largely on how quickly criminal fingerprints are submitted by  local and state law enforcement agencies after arrests are made. IAFIS Processing of Criminal Fingerprints Is Important for Updating and Providing Complete Criminal History Information and Can Provide Positive Identification of Arrestees

IAFIS processing of criminal fingerprints is important to local and state  law enforcement agencies not only for updating national criminal records  databases but also for obtaining an individual’s complete criminal  history—and, at times, for obtaining positive identification of arrestees  and for immediate warrant notification. For  the recent 8-month period we studied (October 2002 through May 2003),  law enforcement agencies wanted a response from the FBI for 78 percent  of the approximately 5.3 million criminal fingerprint sets submitted. This information  can be used by various justice system officials as a basis for making  fundamental decisions about detention, charging, bail, and sentencing. The extent to which law enforcement agencies use IAFIS responses to  either positively identify arrestees or obtain an arrestee’s criminal history  record is unclear. However, as examples, the FBI provided us summary information  regarding two actual cases where quick identification responses from  IAFIS prevented the release of individuals who gave false names when  they were arrested and were wanted fugitives from another jurisdiction  (see fig. 2). 3). Progress Has Been Made in Achieving Paperless Fingerprint Processing, with Many Factors Influencing Progress

Local and state law enforcement agencies have made progress toward the  FBI’s goal of electronic (paperless) processing of criminal fingerprints in  the IAFIS environment, although there is room for substantial  improvement. For the recent 8-month period we studied (October 2002  through May 2003), the overall average submission time for criminal  fingerprints was 40 days—whereas prior to the implementation of IAFIS,  average submission times were significantly higher (e.g., 118 days in 1997). However, for many jurisdictions, delays in  submitting fingerprints to IAFIS have been attributable to various factors,  including lack of automation, competing priorities and resource  constraints, backlogs of paper fingerprint cards to be processed, and other  factors. Various Efforts Are Under Way to Improve the Timeliness of Criminal Fingerprint Submissions to IAFIS

In recent years, to encourage law enforcement agencies to submit criminal  fingerprints electronically to IAFIS, the FBI has provided states with  network connections, promoted the benefits of IAFIS at national  conferences, and provided states with other technical assistance. The need for positive, fingerprint-based identifications— providing linkages to complete criminal history records—is not likely to  diminish in the foreseeable future, given that significant numbers of  arrestees have multistate criminal histories, the incidence of identity theft  or identity fraud is growing, and homeland security concerns and  noncriminal justice demands are increasing. Appendix I: Objectives, Scope, and Methodology

	Objectives

At the request of the Ranking Minority Member, Senate Committee on  Appropriations, we addressed the following questions regarding the  submission of criminal fingerprints by local and state law enforcement  agencies to the Federal Bureau of Investigation (FBI) for processing by the  Integrated Automated Fingerprint Identification System (IAFIS):    Why is IAFIS processing of criminal fingerprints important to local and  state law enforcement agencies? What efforts are being made to improve the timeliness of criminal  fingerprint submissions from local and state law enforcement agencies?
Why GAO Did This Study

By positively confirming identifications and linking relevant records of arrests and prosecutions, fingerprint analysis provides a basis for making fundamental criminal justice decisions regarding detention, charging, bail, and sentencing. In 1999, the FBI implemented the Integrated Automated Fingerprint Identification System (IAFIS)--a computerized system for storing, comparing, and exchanging fingerprint data in a digital format. The FBI's goal under IAFIS is to ultimately achieve paperless processing and to provide a response within 2 hours to users who submit criminal fingerprints electronically. Maximizing the benefits of rapid responses under IAFIS depends largely on how quickly criminal fingerprints are submitted by local and state law enforcement agencies. Concerns have been raised that, after arrests are made by some local or state law enforcement agencies, periods of up to 6 months may elapse before the criminal fingerprints are submitted for entry into IAFIS. GAO examined (1) the importance of IAFIS processing to local and state law enforcement agencies, (2) the progress these agencies have made toward the goal of paperless fingerprint processing, and (3) efforts being made to improve the timeliness of criminal fingerprint submissions.

What GAO Found

IAFIS processing of criminal fingerprints is important to local and state law enforcement not only for updating national databases but also for obtaining an individual's criminal history and, at times, for obtaining positive identification of arrestees. For a recent 8-month period (October 2002 through May 2003) that GAO reviewed, law enforcement agencies wanted a response from the FBI for 78 percent of the approximately 5.3 million sets of criminal fingerprints submitted to IAFIS. The extent to which these responses were used to either positively identify arrestees or obtain criminal history records is unknown. However, the FBI provided GAO with examples of how IAFIS responses prevented the premature release of individuals who had used false names at arrest and were wanted in other jurisdictions. Law enforcement agencies have made progress toward the FBI's goal of paperless processing of criminal fingerprints, although there is room for substantial improvement. The percentage of criminal fingerprints submitted electronically by state repositories to the FBI increased from 45 percent in 1999 to 70 percent in 2003. Also, for the recent 8-month period GAO reviewed, the overall average submission time for criminal fingerprints was 40 days (an average that encompasses both paper and electronic submissions)--whereas, before IAFIS, average submission times were much higher (e.g., 118 days in 1997). Although much progress has been made, many jurisdictions lack automation and have backlogs of paper fingerprint cards to be processed, in part because of competing priorities and resource constraints. Numerous efforts have been made to help improve the timeliness of criminal fingerprint submissions to IAFIS. To facilitate electronic processing, federal technical and financial assistance has encouraged law enforcement agencies to purchase optical scanning (Livescan) equipment for taking fingerprints and to establish automated systems compatible with FBI standards. GAO noted that the need for quick, fingerprint-based identifications--positively linking individuals to relevant criminal history records--is becoming increasingly important. Reasons for such importance are the mobility of criminals (many of whom have multistate records), the growing incidence of identity theft or identity fraud, the significance of homeland security concerns, and increasing demands stemming from background checksrequired for employment or other noncriminal justice purposes.