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Fusion Center Guidelines

Developing and Sharing Information and Intelligence

in a New Era

Guidelines for Establishing and Operating Fusion Centers at the Local, State, and Federal Levels

Law Enforcement Intelligence, Public Safety, and the

Private Sector

United States Department of Justice

A companion CD has been developed in conjunction with the Fusion Center Guidelines report. This CD contains sample policies, checklists, resource documents, and links to Web sites that are referenced throughout the report. For copies of the resource CD, contact DOJ’s Global at (850) 385-0600.

The fusion center resources are also available at DOJ’s Global Web site, www.it.ojp.gov/fusioncenter, DHS’s Web site, and the Homeland Security Information Network (HSIN).

Issued August 2006

For more information about the Fusion Center Guidelines, contact DOJ’s Global at (850) 385-0600.

For more information about DOJ’s initiatives, go to

www.it.ojp.gov.

Fusion Center Guidelines—Developing and Sharing Information in a New Era �



in a New Era



Private Sector

�� Fusion Center Guidelines—Developing and Sharing Information in a New Era

This document was prepared under the leadership, guidance, and funding of the Bureau of Justice Assistance (BJA), Office of Justice Programs, U.S. Department of Justice, in collaboration with the U.S. Department of Justice’s Global Justice Information Sharing Initiative and the U.S. Department of Homeland Security. The opinions, findings, and conclusions or recommendations expressed in this document are those of the authors and do not necessarily represent the official position or policies of the U.S. Department of Justice or the U.S. Department of Homeland Security.

Fusion Center Guidelines—Developing and Sharing Information in a New Era ��

TheU.S.DepartmentofJust�ce(DOJ)andtheU.S.DepartmentofHomelandSecur�ty(DHS)collaborated�nthedevelopmentofthesefus�oncentergu�del�nes.The�ntentofthepartnersh�pis to provide a consistent, unified message and to provide a comprehens�vesetofgu�del�nesfordevelop�ngandoperat�ngafus�oncenterw�th�nastateorreg�on.

MembersofDOJ’sGlobalJust�ceInformat�onShar�ngIn�t�at�ve(Global)andDHS’sHomelandSecur�tyAdv�soryCounc�l(HSAC)supportedth�sproject,wh�ch�nvolvednumerouslawenforcementexpertsandpract�t�onersfromlocal,state,tr�bal,andfederalagenc�es,aswellasrepresentat�vesofpubl�csafetyandpr�vatesectorent�t�esacrossthecountry.The�rcollect�veknowledge,�ns�ght,andw�ll�ngnesstopart�c�pateresulted�nanoutstand�ngproduct.Strongleadersh�pfortheproject’sfocusgroupswasprov�dedbyPeterModaffer�,cha�roftheLawEnforcementIntell�genceFocusGroup;JohnCohen,cha�rofthePubl�cSafetyFocusGroup;andKennethBouche,cha�rofthePr�vateSectorFocusGroup.

Th�seffortwouldnothavebeenposs�blew�thoutthesupportandgu�danceofkey�nd�v�duals.Aspec�althankyou�sg�ventothefollow�ng�nd�v�dualsforthe�rleadersh�pandcomm�tmenttothis initiative: Regina B. Schofield, Assistant Attorney General, Office of Justice Programs (OJP); Domingo S. Herraiz, Director, BureauofJust�ceAss�stance(BJA),OJP;J.Patr�ckMcCreary,Assoc�ateDeputyD�rectorofNat�onalPol�cy,BJA;T�mBeres,Director, Preparedness Programs Division, Office for Domestic Preparedness, DHS; Dave Brannegan, Program Manager, Office ofStateandLocalGovernmentCoord�nat�onandPreparedness,DHS;Dan�elOstergaard,Execut�veD�rector,HSAC,DHS;Michael Miron, Jeff Gaynor, and Candace Stoltz, Directors, Intell�genceandInformat�onShar�ngWork�ngGroups,HSAC;DHS;andM�ttRomney,cha�rman,Intell�genceandInformat�onShar�ngWork�ngGroup,HSAC,DHS.

Indevelop�ngourcountry’sresponsetothethreatofterror�sm,lawenforcement,publ�csafety,andpr�vatesectorleadershaverecognized the need to improve the sharing of information and intelligence across agency borders. Every official involved �n�nformat�onand�ntell�genceshar�nghasastake�nth�s�n�t�at�ve.Leadersmustmoveforwardw�thanewparad�gmontheexchangeof�nformat�onand�ntell�gence,onethat�ncludesthe�ntegrat�onoflawenforcement,publ�csafety,andthepr�vatesector.

Lawenforcement,publ�csafety,andpr�vatesectorleadersareencouragedtoembracethegu�del�nes�nth�sreportwhenestabl�sh�ngafus�oncenterorpart�c�pat�ng�none.Informat�onand�ntell�genceshar�ngamongstatesandjur�sd�ct�onsw�llbecome seamless and efficient when each fusion center uses a common set of guidelines. It is the intent of this document to provide guidelines that help ensure fusion centers are established and operated effectively and efficiently in a manner that protects the privacy and civil liberties of citizens. The complete support of public safety leaders at all levels is critical to the successful�mplementat�onandoperat�onoffus�oncenters.

The Role of Leadership

Foreword

�v Fusion Center Guidelines—Developing and Sharing Information in a New Era

Fusion Center Guidelines—Developing and Sharing Information in a New Era v

Foreword................................................................................................................................................................................................iii

ExecutiveSummary..............................................................................................................................................................................1

SummaryofGuidelinesandKeyElements........................................................................................................................................5

Introduction—FusionConceptandFunctions...................................................................................................................................9Fus�onCenterGu�del�nesDevelopment...........................................................................................................................................9TheFus�onConcept.........................................................................................................................................................................10Fus�onCenters.................................................................................................................................................................................12Fus�onCenterFunct�ons..................................................................................................................................................................13Funct�onalCategor�es......................................................................................................................................................................13StateStrategy..................................................................................................................................................................................14Informat�onFlow...............................................................................................................................................................................14

BackgroundandMethodology.............................................................................................................................................................15APhasedApproach..........................................................................................................................................................................15PhaseI—LawEnforcementIntell�genceComponent.......................................................................................................................15Phase2—Publ�cSafetyComponent................................................................................................................................................16Phase3—Pr�vateSectorComponent..............................................................................................................................................17

GuidelinesGu�del�ne1: TheNCISPandtheIntell�genceandFus�onProcesses...........................................................................................19Gu�del�ne2: M�ss�onStatementandGoals...................................................................................................................................23Gu�del�ne3: Governance...............................................................................................................................................................25Gu�del�ne4: Collaborat�on............................................................................................................................................................29Gu�del�ne5: MemorandumofUnderstand�ng(MOU)andNon-D�sclosureAgreement(NDA)......................................................31Gu�del�ne6: DatabaseResources.................................................................................................................................................33Gu�del�ne7: Interconnect�v�ty........................................................................................................................................................37Gu�del�ne8: Pr�vacyandC�v�lL�bert�es.........................................................................................................................................41Gu�del�ne9: Secur�ty.....................................................................................................................................................................43Gu�del�ne10: Fac�l�ty,Locat�on,andPhys�calInfrastructure...........................................................................................................47Gu�del�ne11: HumanResources....................................................................................................................................................51Gu�del�ne12: Tra�n�ngofCenterPersonnel....................................................................................................................................53Gu�del�ne13: Mult�d�sc�pl�naryAwarenessandEducat�on..............................................................................................................55Gu�del�ne14: Intell�genceServ�cesandProducts...........................................................................................................................57

Table of Contents

v� Fusion Center Guidelines—Developing and Sharing Information in a New Era

Gu�del�ne15: Pol�c�esandProcedures...........................................................................................................................................59Gu�del�ne16: CenterPerformanceMeasurementandEvaluat�on..................................................................................................61Gu�del�ne17: Fund�ng.....................................................................................................................................................................63Gu�del�ne18: Commun�cat�onsPlan...............................................................................................................................................65

NextSteps..............................................................................................................................................................................................67

AppendicesAppend�xA: FocusGroupPart�c�pantsandAcknowledgements...................................................................................................A-1Append�xB: Fus�onCenterCDResources...................................................................................................................................B-1Append�xC: Funct�onalCategor�es...............................................................................................................................................C-1Append�xD: HSACHomelandSecur�tyIntell�genceandInformat�onFus�onReport...................................................................D-1Append�xE: Informat�onExchangeAnalys�sandDes�gnReport..................................................................................................E-1Append�xF: Fus�onCenterReportGlossary.................................................................................................................................F-1Append�xG: Acronyms..................................................................................................................................................................G-1

Fusion Center Guidelines—Developing and Sharing Information in a New Era 1

Theneedtodevelopandshare�nformat�onand�ntell�genceacross all levels of government has significantly changed over thelastfewyears.Thelong-stand�ng�nformat�onshar�ngchallengesamonglawenforcementagenc�es,publ�csafetyagenc�es,andthepr�vatesectorareslowlyd�sappear�ng.Yet,theneedto�dent�fy,prevent,mon�tor,andrespondtoterror�stand criminal activities remains a significant need for the law enforcement,�ntell�gence,publ�csafety,andpr�vatesectorcommun�t�es.

Throughthesupport,expert�se,andknowledgeofleadersfromallent�t�es�nvolved,thefus�oncenterconceptcanbecomea reality. Each official has a stake in the development and exchangeof�nformat�onand�ntell�genceandshouldactasanambassadortosupportandfurtherth�s�n�t�at�ve.It�stherespons�b�l�tyofleadersh�pto�mplementandadheretotheFusionCenterGuidelines.

Thedevelopmentandexchangeof�ntell�gence�snoteasy.Shar�ngth�sdatarequ�resnotonlystrongleadersh�p,�talsorequ�resthecomm�tment,ded�cat�on,andtrustofad�versegroupofmenandwomenwhobel�eve�nthepowerofcollaborat�on.

Howcanlawenforcement,publicsafety,andprivateentitiesembraceacollaborativeprocesstoimproveintelligencesharingand,ultimately,increasetheabilitytodetect,prevent,andsolvecrimeswhilesafeguardingourhomeland?Recently,an�n�t�at�vehasemergedthat�ncorporatesthevar�ouselementsofan�deal�nformat�onand�ntell�genceshar�ngproject:fus�oncenters(or“center”).Th�s�n�t�at�veoffersgu�del�nesandtoolstoass�st�ntheestabl�shment

andoperat�onofcenters.Thegu�del�nesaream�lestone�nachieving a unified force among all levels of law enforcement agencies; public safety agencies, such as fire, health, and transportat�on;andthepr�vatesector.Fus�oncentersbr�ngallthe relevant partners together to maximize the ability to prevent andrespondtoterror�smandcr�m�nalacts.Byembrac�ngth�sconcept, these entities will be able to effectively and efficiently safeguard our homeland and maximize anticrime efforts.

What Is the Fusion Center Guidelines Initiative?In2004and2005,manystatesbegancreat�ngfus�oncentersw�thvar�ouslocal,state,andfederalfunds.Atthet�me,nostandardsorgu�del�neswere�nex�stencetoass�stw�th�nteroperab�l�tyandcommun�cat�on�ssuesw�thothercentersatthestate,reg�onal,andfederallevels.Asaresult,centersdes�gnedtoshare�nformat�onwereactuallys�losof�nformat�on,�ncapableof�nformat�onexchange.Inresponse,theU.S.DepartmentofJust�ce(DOJ),attherequestof�tsGlobalJust�ceIn their January 2005 survey, the National

Governors Association Center for Best

Practices revealed that states ranked the

development of state intelligence fusion

centers as one of their highest priorities.

Executive Summary

2 Fusion Center Guidelines—Developing and Sharing Information in a New Era

Informat�onShar�ngIn�t�at�ve’s(Global)Cr�m�nalIntell�genceCoord�nat�ngCounc�l(CICC),formedtheLawEnforcementIntell�genceFus�onCenterFocusGroup(FCFG).1

Concurrently,theU.S.DepartmentofHomelandSecur�ty’s(DHS)HomelandSecur�tyAdv�soryCounc�l(HSACorCounc�l)Intell�genceandInformat�onShar�ngWork�ngGroupwasfocus�ngonprevent�onand�nformat�onshar�ngbydevelop�nggu�del�nesforlocalandstateagenc�es�nrelat�ontothecollect�on,analys�s,andd�ssem�nat�onofterror�sm-related�ntell�gence(�.e.,thefus�onprocess).Therecommendat�onsresult�ngfromDOJ’s�n�t�at�veandHSAC’seffortsla�dthefoundat�onfortheexpans�onoftheFusionCenterGuidelinesto�ntegratethepubl�csafetyandpr�vatesectorent�t�es.

Subsequenttopubl�sh�ngVers�on1oftheFusionCenterGuidelinesandtheHSAC’sIntelligenceandInformationSharingInitiative:HomelandSecurityIntelligenceandInformationFusionreport,DOJandHSACestabl�shedtwoadd�t�onalfocusgroups—thePubl�cSafetyFCFGandthePr�vateSectorFCFG—�nanefforttodevelopacomprehens�vesetofgu�del�nesforfus�oncenters.Part�c�pants�nthethreefocusgroups2�ncludedexpertsandpract�t�onersfromlocal,state,andfederallawenforcementagenc�es;publ�csafetyagenc�es;andthepr�vatesectoraswellasrepresentat�vesfromcurrentlyoperat�ngfus�oncenters.3Inadd�t�on,representat�vesfromnat�onallawenforcement,publ�csafety, and private sector organizations participated in the focus groups.

Thesegu�del�nesshouldbeusedtoensurethatfus�oncentersareestabl�shedandoperatedcons�stently,result�ng�nenhancedcoord�nat�onefforts,strengthenedpartnersh�ps,and�mprovedcrime-fighting and antiterrorism capabilities. The guidelines andrelatedmater�alsw�llprov�deass�stancetocentersastheyprioritize and address threats posed in their specific jurisdictions forallcr�metypes,�nclud�ngterror�sm.Inadd�t�on,thegu�del�nesw�llhelpadm�n�stratorsdeveloppol�c�es,manageresources,andevaluateserv�cesassoc�atedw�ththejur�sd�ct�on’sfus�oncenter.

Thegu�del�nesshouldbeusedforhomelandsecur�ty,aswellas all crimes and hazards. The full report contains an in-depth explanat�onofthegu�del�nesandthe�rkeyelements.Also�ncluded�nthereportareadd�t�onalresources,modelpol�c�es,andtoolsforgu�del�ne�mplementat�on.

What Is the Fusion Process?Theconceptoffus�onhasemergedasthefundamentalprocesstofac�l�tatetheshar�ngofhomelandsecur�ty-relatedandcr�me-related�nformat�onand�ntell�gence.Forpurposesofth�s�n�t�at�ve,fus�onreferstotheoverarch�ngprocessofmanaging the flow of information and intelligence across all levelsandsectorsofgovernmentandpr�vate�ndustry.Itgoesbeyondestabl�sh�ngan�nformat�on/�ntell�gencecenterorcreat�ngacomputernetwork.Thefus�onprocesssupportsthe�mplementat�onofr�sk-based,�nformat�on-dr�venprevent�on,

1 Prev�ouslynamedtheFus�onCenterIntell�genceStandardsFocusGroup.2 Acompletel�st�ngofpart�c�pantsfromeachofthefocusgroupscanbefound�nAppend�xA.3 Informat�ononcurrentlyoperat�ngfus�onand�ntell�gencecenterscanbeaccessedv�atheNat�onalCr�m�nalIntell�genceResourceCenteratwww.nc�rc.gov.

response,andconsequencemanagementprograms.Atthesamet�me,�tsupportseffortstoaddress�mmed�ateoremerg�ngthreat-relatedc�rcumstancesandevents.

Datafus�on�nvolvestheexchangeof�nformat�onfromd�fferentsources—�nclud�nglawenforcement,publ�csafety,andthepr�vatesector—and,w�thanalys�s,canresult�nmean�ngfulandact�onable�ntell�genceand�nformat�on.Thefus�onprocessturnsth�s�nformat�onand�ntell�gence�ntoact�onableknowledge.Fus�onalsoallowsforrelentlessreevaluat�onofex�st�ngdata�ncontextw�thnewdata�nordertoprov�deconstantupdates.Thepubl�csafetyandpr�vatesectorcomponentsare�ntegral�nthefus�onprocessbecausetheyprov�defus�oncentersw�thcr�me-related�nformat�on,�nclud�ngr�skandthreatassessments,and subject-matter experts who can aid in threat identification.

Becauseofthepr�vacyconcernsthatattachtopersonallyidentifiable information, it is not the intent of fusion centers to combine federal databases containing personally identifiable �nformat�onw�thstate,local,andtr�baldatabases�ntoonesystemorwarehouse.Rather,whenathreat,cr�m�nalpred�cate,or public safety need is identified, fusion centers will allow information from all sources to be readily gathered, analyzed, and exchanged,baseduponthepred�cate,byprov�d�ngaccesstoavar�etyofd�sparatedatabasesthatarema�nta�nedandcontrolledbyappropr�atelocal,state,tr�bal,andfederalrepresentat�vesatthefus�oncenter.Theproductofth�sexchangew�llbestoredbytheent�tytak�ngact�on�naccordancew�thanyappl�cablefus�oncenterand/ordepartmentpol�cy,�nclud�ngstateandfederalpr�vacylawsandrequ�rements.

What Is a Fusion Center?A fusion center is an effective and efficient mechanism to exchange information and intelligence, maximize resources, streamline operations, and improve the ability to fight crime and terrorism by analyzing data from a variety of sources. Inadd�t�on,fus�oncentersareacondu�tfor�mplement�ngport�onsoftheNationalCriminalIntelligenceSharingPlan(hereafter,NCISPorPlan).4TheNCISP�sthebluepr�ntforlawenforcementadm�n�stratorstofollowwhenenhanc�ngorbu�ld�ngan�ntell�gencefunct�on.ThePlanconta�nsover25recommendations that were vetted by law enforcement officials andexpertsfromlocal,state,tr�bal,andfederalagenc�es.Itembraces�ntell�gence-ledpol�c�ng,commun�typol�c�ng,andcollaborat�onandservesasthefoundat�onfortheFusionCenterGuidelines.

Afusioncenter is defined as a “collaborative effort of two or more agenc�esthatprov�deresources,expert�se,and�nformat�onto the center with the goal of maximizing their ability to detect, prevent,�nvest�gate,andrespondtocr�m�nalandterror�stact�v�ty.”Amongthepr�maryfocusesoffus�oncentersarethe

4 TheNationalCriminalIntelligenceSharingPlan�sava�lableatwww.�t.ojp.gov.

Fusion: Turning Information and Intelligence

Into Actionable Knowledge


�ntell�genceandfus�onprocesses,throughwh�ch�nformat�on�scollected, integrated, evaluated, analyzed, and disseminated. Nontrad�t�onalcollectorsof�ntell�gence,suchaspubl�csafetyentities and private sector organizations, possess important �nformat�on(e.g.,r�skassessmentsandsusp�c�ousact�v�tyreports)thatcanbe“fused”w�thlawenforcementdatatoprov�demean�ngful�nformat�onand�ntell�genceaboutthreatsandcr�m�nalact�v�ty.It�srecommendedthatthefus�onofpubl�csafetyandpr�vatesector�nformat�onw�thlawenforcementdatabe virtual through networking and utilizing a search function. Examplesofthetypesof�nformat�on�ncorporated�ntotheseprocessesarethreatassessmentsand�nformat�onrelatedtopubl�csafety,lawenforcement,publ�chealth,soc�alserv�ces,andpubl�cworks.Federaldatathatconta�nspersonallyidentifiable information should not be combined with this data

unt�lathreat,cr�m�nalpred�cate,orpubl�csafetyneedhasbeenidentified. These processes support efforts to anticipate, identify, prevent,mon�tor,andrespondtocr�m�nalact�v�ty.Federallawenforcementagenc�esthatarepart�c�pat�ng�nfus�oncentersshouldensurethattheycomplyw�thallappl�cablepr�vacylawswhencontemplat�ngthewholesaleshar�ngof�nformat�onw�thnontrad�t�onallawenforcementent�t�es.

Ideally,thefus�oncenter�nvolveseverylevelandd�sc�pl�neofgovernment,pr�vatesectorent�t�es,andthepubl�c—thoughthelevelof�nvolvementofsomeofthesepart�c�pantsw�llvarybased on specific circumstances. The fusion process should be organized and coordinated, at a minimum, on a statewide level, andeachstateshouldestabl�shandma�nta�nacentertofac�l�tatethefus�onprocess.Thoughthefoundat�onoffus�oncenters�sthelawenforcement�ntell�gencecomponent,centerleadersh�pshouldevaluatethe�rrespect�vejur�sd�ct�onstodeterm�newhatpubl�csafetyandpr�vatesectorent�t�esshouldpart�c�pate�nthefus�oncenter.Toa�d�nth�sassessment,funct�onalcategor�eshavebeendeveloped,�nwh�chs�m�larent�t�esaregrouped.Thesecategor�esarenotcomprehens�vebutrepresentastart�ngpo�ntforfus�oncenterleadersh�ptobeg�nassess�ngwhatagencies and organizations should be involved in the center’s operat�ons.

Thefunct�onalcategor�es�nclude:

Agr�culture,Food,Water,andtheEnv�ronmentBank�ngandF�nanceChemical Industry and Hazardous Materials

Cr�m�nalJust�ceEducat�onEmergencyServ�ces(non-lawenforcement)EnergyGovernmentHealthandPubl�cHealthServ�cesHosp�tal�tyandLodg�ngInformat�onandTelecommun�cat�onsM�l�taryFac�l�t�esandDefenseIndustr�alBasePostalandSh�pp�ngPr�vateSecur�tyPubl�cWorksRealEstateReta�lSoc�alServ�cesTransportat�on

TheFusionCenterGuidelinesreportconta�nsanappend�xdescr�b�ngthefunct�onalcategor�esandprov�desexamplesofthetypesof�nformat�onthattheent�t�escanprov�detofus�oncenters.

Although each fusion center will have unique

characteristics, it is important for centers

to operate under a consistent framework—

similar to the construction of a group of

buildings where each structure is unique,

yet a consistent set of building codes and

regualtions are adhered to regardless of the

size or shape of the building.


Why Should Fusion Centers Be Established?Theult�mategoal�stoprov�deamechan�smthroughwh�chgovernment,lawenforcement,publ�csafety,andthepr�vatesectorcancometogetherw�thacommonpurposeand�mprovetheab�l�tytosafeguardourhomelandandpreventcr�m�nalact�v�ty.It�scr�t�calforgovernmenttoaccompl�shmorew�thless.Fus�oncentersembodythecoreofcollaborat�on,andasdemands�ncreaseandresourcesdecrease,fus�oncentersw�llbecome an effective tool to maximize available resources and bu�ldtrustedrelat�onsh�ps.It�srecommendedthatfus�oncentersadheretothesegu�del�nesand�ntegratethekeyelementsofeachgu�del�netothefullestextent,�nordertoenhance�nformat�onand�ntell�genceshar�ng.


SummaryofGu�del�nesandKeyElements5

AdheretothetenetscontainedintheNational Criminal Intelligence Sharing Plan(NCISP)andother sector-specific information sharing plans, andperformallstepsoftheintelligenceandfusionprocesses.

ConsultthetenetsoftheNCISP,andusemodelstandardsandpol�c�esasabluepr�ntforestabl�sh�ngorenhanc�ngthe�ntell�gencefunct�onw�th�nthecenter.ConsulttheHomelandSecur�tyAdv�soryCounc�l’s(HSAC)IntelligenceandInformationSharingInitiative:HomelandSecurityIntelligenceandInformationFusionreportwhen�ncorporat�ngthefus�onprocess�nthecenter.

Collaborativelydevelopandembraceamissionstatement,andidentifygoalsforthefusioncenter.

Developthecenter’sm�ss�onstatementandgoalscollaborat�velyw�thpart�c�pat�ngent�t�es.Identify customer needs, define tasks, and prioritize funct�ons.Ensurethem�ss�onstatement�sclearandconc�seandconveysthepurpose,pr�or�ty,androleofthecenter.Includethenameandtypeofthecenter,whatthecenterdoes,andwhomthecenterserves�nthem�ss�onstatement.

Createarepresentativegovernancestructurethatincludeslawenforcement,publicsafety,andtheprivatesector.

Ensureallpart�c�pat�ngagenc�eshaveavo�ce�ntheestabl�shmentandoperat�onofthefus�oncenter.Ensurepart�c�pat�ngent�t�esareadequatelyrepresentedw�th�nthegovernancestructure.Compose the governing body with officials who have author�tytocomm�tresourcesandmakedec�s�ons.

5 Electron�cvers�onsofthedocuments,products,andreportsreferenced�nthefollow�nggu�del�nescanbefoundatwww.�t.ojp.gov.

1.

2.

3.

Createacollaborativeenvironmentforthesharingofintelligenceandinformationamonglocal,state,tribal,andfederallawenforcementagencies,publicsafetyagencies,andtheprivatesector.

Ma�nta�nad�versemembersh�pto�ncluderepresentat�vesfromlocal,state,tr�bal,andfederallawenforcement,publ�csafety,andthepr�vatesector.Conductregularmeet�ngsw�thcenterpersonnel,andparticipate in networking groups and organizations. Educate and liase with elected officials and community leadersh�ptopromoteawarenessofcenteroperat�ons.

UtilizeMemorandaofUnderstanding(MOUs),Non-DisclosureAgreements(NDAs),orothertypesofagencyagreements,asappropriate.

Educateandconsultlegaladv�sorsearly�nthefus�oncenterdevelopmentprocess.Utilize an NDA for fusion center personnel and part�c�pantstoa�d�nthesecur�tyofpropr�etary�nformat�on.Ensureawarenessoflocal,state,andfederalpubl�crecordslawsastheyrelatetoNDAs,�nclud�ngtheFreedomofInformat�onAct(FOIA).UseanMOUasthefoundat�onforacollaborat�ve�n�t�at�ve,foundedontrust,w�ththe�ntenttoshareandexchange�nformat�on.Atam�n�mum,cons�der�nclud�ngthefollow�ngelements�nfus�oncenterMOUs:

Involvedpart�esM�ss�onGovernanceAuthor�tySecur�tyAss�gnmentofpersonnel(removal/rotat�on)Fund�ng/costsCivil liability/indemnification issuesPol�c�esandproceduresPr�vacyTerms

4.

5.

Summary of Guidelines and Key Elements5


Integr�tycontrolD�sputeresolut�onprocessPo�ntsofcontactEffective date/duration/modification/terminationServ�cesDeconfliction procedureCodeofconductforcontractorsSpec�alcond�t�onsProtocolsforcommun�cat�onand�nformat�onexchange

Leveragethedatabases,systems,andnetworksavailableviaparticipatingentitiestomaximizeinformationsharing.

Obta�naccesstoanarrayofdatabasesandsystems.Atam�n�mum,cons�derobta�n�ngaccesstodr�ver’sl�cense�nformat�on,motorveh�clereg�strat�ondata,locat�on�nformat�on,lawenforcementandcr�m�naljust�cesystemsornetworks,andcorrect�onaldata.Becomeamemberofareg�onalorstatesecurelawenforcementnetwork,suchastheReg�onalInformat�onShar�ngSystems®(RISS)/FederalBureauofInvest�gat�on’s(FBI)LawEnforcementOnl�ne(LEO)system,theU.S.DepartmentofHomelandSecur�ty’s(DHS)HomelandSecur�tyInformat�onNetwork(HSIN),ortheFBI’sLawEnforcementReg�onalDataExchange(R-DEx)andNat�onalDataExchange(N-DEx).

Createanenvironmentinwhichparticipantsseamlesslycommunicatebyleveragingexistingsystemsandthosecurrentlyunderdevelopment,andallowforfutureconnectivitytootherlocal,state,tribal,andfederalsystems.UsetheU.S.DepartmentofJustice’s(DOJ)GlobalJusticeExtensibleMarkupLanguage(XML)DataModelandtheNationalInformationExchangeModel(NIEM)standardsforfuturedatabaseandnetworkdevelopment,andconsiderutilizingtheJusticeInformationExchangeModel(JIEM)forenterprisedevelopment.

Establ�shformalcommun�cat�onsprotocols,andensureeffective and efficient information exchange.Developand�mplementacommun�cat�onsplan,andensuresecureandredundantcommun�cat�ons.Ensurecommun�cat�onsandsystemsaccesspol�c�es,�nclud�ngconsequencesfornoncompl�ance.Consider utilizing the Organization for the Advancement of Structured Information Standards (OASIS)-ratified CommonAlert�ngProtocol(CAP)toenabletheexchangeofemergencyalertandpubl�cwarn�ng�nformat�onoverdatanetworksandcomputer-controlledwarn�ngsystems.

Develop,publish,andadheretoaprivacyandcivillibertiespolicy.

Develop,d�splay,adhereto,andtra�npersonnelonthecenter’spr�vacypol�cy.ConsulttheFa�rInformat�onPract�ceswhendevelop�ngapr�vacypol�cy.Ensureallotherpol�c�esand�nternalcontrolsare

6.

7.

8.

cons�stentw�ththecenter’spr�vacypol�cy.Establ�shaprocessfortrack�ngandhandl�ngpr�vacycompla�ntsorconcerns.Developrulesontheuseofpr�vatelyhelddatasystems�nformat�on.Adheretoappl�cablestateandfederalconst�tut�onalandstatutorypr�vacyandc�v�ll�bert�esprov�s�ons.Spec�fythatpubl�csafetyandpr�vatesectordatabasesshouldnotbecomb�nedw�thanyfederaldatabasesthatcontain personally identifiable information.Fus�oncenterpart�c�pantsshouldcomplyw�thalllocal,state,tr�bal,andfederalpr�vacylaws,whenappl�cable.

Ensureappropriatesecuritymeasuresareinplaceforthefacility,data,andpersonnel.

Develop,publ�sh,andadheretoasecur�typlan,andensurepropersafeguardsare�nplace.Ensuresecur�typlansaremarked,handled,andcontrolledas sensitive but unclassified (SBU) information. Obta�nappropr�atesecur�tyclearancesforpersonnelw�th�nthecenterandkeydec�s�onmakerswhoneedaccess.Conductbackgroundchecksonpersonnel.Tra�npersonnelonthecenter’ssecur�typrotocols.ConsultGlobal’sApplyingSecurityPracticestoJusticeInformationSharingdocumentandresourcemater�alswhendevelop�ngasecur�typlan.ConsulttheHomelandSecur�tyInformat�onActof2002:Cr�t�calInfrastructureInformat�onActwhencollect�ngandstor�ngcr�t�cal�nfrastructure-related�nformat�on.Consultpr�vate�ndustrysecur�typersonnelwhenobtaining and storing industry-specific information (e.g., bu�ld�ngsecur�typlans).Ensure state laws allow for the security and confidentiality ofpubl�candpr�vatesectordata.

Integratetechnology,systems,andpeople.Colocate personnel and/or utilize virtual integration to br�ngtechnology,systems,andpeopletogether.Basetheselect�onofas�teonthefunct�onalneedsofthecenter.Plan,�dent�fy,des�gn,tra�n,�mplement,andadheretoaphys�calsecur�typlanandacont�ngencyplan.

Achieve a diversified representation of personnel basedontheneedsandfunctionsofthecenter.

Ma�nta�na24-hour-a-day/7-day-a-weekoperat�onwhenfeas�ble.Requ�ream�n�mumtermcomm�tmentforfull-t�mecenterpersonnel.Ident�fysubject-matterexpertsfromthepr�vatesectorforutilization when industry-specific threats or crimes are identified (e.g., cyber threats).AdheretotheLawEnforcementAnalyticStandardsbookletandotherrelevantanalyt�cpubl�cat�onsava�lablethroughtheInternat�onalAssoc�at�onofLawEnforcement

9.

10.

11.


Intell�genceAnalysts(IALEIA)whenh�r�ngpersonneltoperformtheanalyt�cfunct�on.

Ensurepersonnelareproperlytrained.Adheretothetra�n�ngobject�vesoutl�ned�ntheNationalCriminalIntelligenceSharingPlan.Ensurecenterpersonnelmeetthem�n�mumtra�n�ngstandardsoutl�ned�nthereportMinimumCriminalIntelligenceTrainingStandardsforUnitedStatesLawEnforcementandOtherCriminalJusticeAgencies.Ensurecenterpersonnelrece�vetra�n�ngonfac�l�tyand�nformat�onsecur�ty,operat�ons,pol�c�es,andprocedures.Includecross-educat�onaltra�n�ngregard�ngthefus�oncentersandtheappl�cablefunct�onalcategor�es,�nclud�ngthetypesof�nformat�onthatent�t�escanprov�detothefus�oncenterandwhatthecenterdoesw�ththe�nformat�on,oncerece�ved.

Provideamultitieredawarenessandeducationalprogramtoimplementintelligence-ledpolicingandthedevelopmentandsharingofinformation.

Ensureappropr�atenoncenterpersonnel�nvolved�nthe�ntell�genceprocessareawareofthecenter’sfunct�ons,�nclud�ngpol�cymakers,agencyheads,andpr�vatesectorexecut�ves.Developandd�ssem�nateoutreachandeducat�onalmaterials to officers, analysts, policymakers, and others.

Offeravarietyofintelligenceservicesandproductstocustomers.

Producestrateg�candtact�calproductstosupportthem�ss�onandpr�or�t�esofthecenter.ConsulttheLawEnforcementAnalyticStandardsbooklettoensuredevelopmentofprofess�onalqual�tyanalyt�cproducts.Ensurethatfeedbackfrompart�c�pat�ngagenc�esandorganizations occurs when products are created and d�str�buted.

Develop,publish,andadheretoapoliciesandproceduresmanual.

Use a standardized format to allow for easy reading, filing, retr�ev�ng,andcorrect�ng.Implementanannualrev�ewofcenterd�rect�ves,andpurgeorrev�seoutdatedpol�c�esandprocedures.Ensurethatpersonnelhaveaccesstothelatestpol�c�esandproceduresmanual.

Define expectations, measure performance, and determineeffectiveness.

Des�gnperformancemeasuresbasedonthecenter’scorem�ss�on,goals,andobject�ves.Ensureperformancemeasuresareval�d,rel�able,measurable, and quantifiable.Developanevaluat�onprocesstogaugetheadequacy,appropr�ateness,andsuccessofcenterserv�ces.Useperformancemeasuresandanevaluat�onprocessto

12.

13.

14.

15.

16.

makedec�s�onsandallocateresources.Utilize performance measures to track progress and ensureaccountab�l�ty.Informcenterpersonnelofperformanceandprogressonaregularbas�s.

Establishandmaintainthecenterbasedonfundingavailabilityandsustainability.

Ident�fycenterneedsandava�lablefund�ngsources,to�ncludelocal,state,tr�bal,federal,andnongovernmentalsources.Establ�shanoperat�onalbudgetandadheretoreport�ngrequ�rements.

Developandimplementacommunicationsplanamongfusioncenterpersonnel;alllawenforcement,publicsafety,andprivatesectoragenciesandentitiesinvolved;andthegeneralpublic.

Determ�nepr�maryandsecondarymodesofcommun�cat�onbetweenthefus�oncenterandpart�c�pat�ngent�t�es.Incorporateregulartest�ngoftheplantoensure�tsfunct�onal�ty.Includeamechan�smtoalertfus�oncenterpart�c�pantsofnew�nformat�onand�ntell�gence.

17.

18.

A companion CD has

been developed in

conjunction with

the Fusion Center

Guidelines report. This

CD contains sample

policies, checklists, resource documents, and links

to Web sites that are referenced throughout the

report. For copies of the resource CD, contact

DOJ’s Global at (850) 385-0600. The fusion

center resources are also available at DOJ’s

Global Web site, www.it.ojp.gov/fusioncenter,

DHS’s Web site, and the Homeland Security

Information Network (HSIN).



Ascr�m�nalandterror�stact�v�tythreatensthesafetyofournation’s citizens and visitors, the ability to quickly exchange relevant�nformat�onand�ntell�gencebecomes�ncreas�nglycritical. Over the last few years, significant progress has been made�nbreak�ngdownbarr�ersand�mprov�ng�nformat�onexchange. Policymakers and leaders have recognized the �mportanceofcreat�nganenv�ronmentwhere�ntell�gencecanbesecurelysharedamonglawenforcement,publ�csafetyagenc�es,andthepr�vatesector.Althoughstr�deshavebeenmade,there�sst�llmuchworkahead.There�sst�llanurgentneedtorigorously refine and accommodate our rapidly changing world.

Manyobstacleshavebeenencounteredthathave�mpactedtheab�l�tytoshare�ntell�gence,suchasthelackoftrustedpartnersh�ps;d�sparate,�ncompat�ble,andant�quatedcommun�cat�ons,computersystems,andsoftware;theneedtoquerymult�pledatabasesorsystems;thelackofcommun�cat�on;thelackofstandardsandpol�c�es;andlegalandcultural�ssues.

These barriers have proven to be difficult hurdles. Yet, there arestepsthatcanbetakentoovercomethese�ssuesandcreateaproact�veenv�ronmentforthesuccessfulexchangeof�ntell�gence.

Fusion Center Guidelines DevelopmentThroughtheU.S.DepartmentofJust�ce(DOJ),membersof�tsGlobalJust�ceInformat�onShar�ngIn�t�at�ve(Global)havedevelopedrecommendedgu�del�nestoenhancejust�ce�nformat�onshar�ng.6Examples�ncludetheNationalCriminalIntelligenceSharingPlan(NCISPorPlan),thePrivacyandInformationQualityPolicyDevelopmentfortheJusticeDecisionMaker,theApplyingSecurityPracticestoJusticeInformationSharing,andtheGlobalJust�ceExtens�bleMarkupLanguage(XML)DataModel(GlobalJXDM).DOJ’sGlobalrepresentsover 30 law enforcement organizations throughout the country, atalllevelsofgovernment.Globalpromotesstandards-basedelectron�c�nformat�onexchangetoprov�dethejust�cecommun�tyw�tht�mely,accurate,complete,andaccess�ble�nformat�on�nasecureandtrustedenv�ronment.

6 Formore�nformat�onregard�ngGlobal,v�s�twww.�t.ojp.gov.

ThroughtheGlobalIntell�genceWork�ngGroup(GIWG)—oneofGlobal’sfour�ssue-focusedwork�nggroups—�ntell�gence�ssues,concerns,andobstacleshavebeenaddressed.Global’sCr�m�nalIntell�genceCoord�nat�ngCounc�l(CICC)7supportedthedevelopmentoftheLawEnforcementIntell�genceFus�onCenterFocusGroup(FCFG)to�n�t�atePhase1ofthefus�oncentergu�del�nesdevelopment.Th�sgroupwastaskedw�threcommending guidelines specifically for the law enforcement

7 TheCICCwasestabl�shed�nresponsetorecommendat�onsconta�ned�ntheNCISP.TheCICC�scomposedoflocal,state,andfederalent�t�esandadv�sestheU.S.AttorneyGeneralonmattersrelat�ngtocr�m�nal�ntell�gence.

Information systems contribute to every aspect

of homeland security. Although American

information technology is the most advanced

in the world, our country’s information systems

have not adequately supported the homeland

security mission. Databases used for federal

law enforcement, immigration, intelligence,

public health, surveillance, and emergency

management have not been connected in

a way that allows us to comprehend where

information gaps and redundancies exist.

We must link the vast amounts of knowledge

residing within each government agency while

ensuring adequate privacy.

The National Strategy for Homeland Security

July 2002

Introduction— Fusion Concept and Functions


�ntell�gencecomponentoffus�oncenters.Thefocusgroupwasalsotaskedw�threcommend�ngrelatedmodelpol�c�esandprocedures to support this initiative. Group members recognized theneedand�mportanceof�ntegrat�ngallpubl�csafetyandpr�vatepartners.

Concurrently,aparalleleffortwasunderwaybytheHomelandSecur�tyAdv�soryCounc�l(HSAC)Intell�genceandInformat�onShar�ngWork�ngGrouptodevelop�ntell�genceand�nformat�onsharing guidelines, based on specific presidential directives, for local,state,andfederalagenc�escreat�ngfus�oncenters.8Thesed�rect�vesprov�degu�dancetolocalandstateent�t�esregard�ngprevent�onandresponsetocr�m�nalandterror�stact�v�t�es.9The recommendations and findings resulting from HSAC’s Intell�genceandInformat�onShar�ngWork�ngGroupeffortssupporttheexpans�onoftheFusionCenterGuidelinestopubl�csafetyandpr�vatesectorent�t�es.

SubsequenttotheeffortsoftheLawEnforcementIntell�genceFCFGandHSAC,thePubl�cSafetyFCFGwascreatedforthepurposeof�ntegrat�ngthepubl�csafetycomponent�ntotheFusionCenterGuidelines.Membersofthefocusgroupconcentratedontheneedfor�nformat�onand�ntell�genceshar�ngbetweenlawenforcementandpubl�csafetycommun�t�es.Th�sgroupendorsedthegu�del�nesdevelopedbytheLawEnforcementIntell�genceFCFGandofferedsuggest�onsandrecommendat�onstosuccessfully�ncorporatepubl�csafetyent�t�es�ntofus�oncenters.

Thelastphaseestabl�shedthePr�vateSectorFCFG,whosem�ss�onwasto�ntegratethepr�vatesector�ntothegu�del�nes.W�th85percentofcr�t�cal�nfrastructureownedbypr�vateent�t�es,the�r�nvolvement�nfus�oncenters�sessent�altohav�ngacomprehensive all-hazards, all-crimes fusion center. Key points addressed�ncludedcollaborat�onbetweenthefus�oncenterandmission-critical private sector entities, as well as identification of pr�vatesectorcapab�l�t�esand�nformat�onneeds.Inadd�t�on,theneedforatwo-wayeducat�onalprocessbetweenthepr�vatesector and fusion centers was identified. The purpose of this educat�onalprocess�stodevelopanunderstand�ngofhoweachent�tyoperatesandhoweachcanenhanceoperat�onsandfunct�onal�tyw�ththeother.

Alllevelsofgovernment,thepr�vatesector,andnongovernmentalorganizations must work together to prepare for, prevent, respond to,andrecoverfromterror�standcr�m�nalevents.Through

8 More�nformat�ononHSACcanbeaccessedatwww.dhs.gov/hsac.9 HomelandSecur�tyPres�dent�alD�rect�ve8(HSPD-8)was�ssuedw�ththepurposeofestabl�sh�ngpol�c�estostrengthenthepreparednessoftheUn�tedStatestopreventandrespondtothreatenedoractualdomest�cterror�stattacks,majord�sasters,andotheremergenc�es.Th�sis done by requiring a national domestic all-hazards preparedness goal, establ�sh�ngmechan�smsfor�mproveddel�veryoffederalpreparednessass�stancetostateandlocalgovernments,andoutl�n�ngact�onstostrengthenpreparednesscapab�l�t�esoffederal,state,andlocalent�t�es.HSPD-5 addresses the management of domestic incidents and identifies stepsfor�mprovedcoord�nat�on�nresponseto�nc�dents.Itrequ�restheU.S.DepartmentofHomelandSecur�tytocoord�natew�thotherfederaldepartmentsandlocal,state,andtr�balgovernmentstoestabl�shaNat�onalResponsePlan(NRP)andaNat�onalInc�dentManagementSystem(NIMS).Eachofthese�temsplaysarole�ntheestabl�shmentoffus�oncentersandlaysafoundat�onforenhanced�nformat�onand�ntell�genceshar�ngamongalllevelsoflawenforcement,publ�csafety,andthepr�vatesector.Formore�nformat�onregard�ngHSPD-8,HSPD-5,NRP,andNIMS,v�s�twww.ojp.usdoj.gov/odp/assessments/hspd8.htm.

thehardwork,ded�cat�on,andcomm�tmentofthe�nd�v�dualspart�c�pat�ng�ntheseefforts,theappropr�ategu�del�nes,tools,and�nformat�onw�llbeava�labletoallent�t�es�nvolved.Inadd�t�on,acollaborat�veenv�ronmentw�llresult�nacons�stent,unified approach to prevention and response.

Theult�mategoal�stoprov�deamechan�smwherelawenforcement,publ�csafety,andpr�vatesectorpartnerscancometogetherw�thacommonpurposeand�mprovetheab�l�tytosafeguardourhomelandandpreventcr�m�nalact�v�ty.Thefus�oncenter is this mechanism; it is key to ensuring the flow of threat- andcr�me-related�nformat�onbetweenlocal,state,reg�onal,andfederalpartners.Thegu�del�nesconta�ned�nthereportrepresentthekeycomponentsand�ssuestocons�derwhenestabl�sh�ngfus�oncenters.

The Fusion ConceptLawenforcementhasalwaysbeenawareofthekeyrolethat�nformat�onand�ntell�genceplay�nprevent�onandresponse.Although�t�s�mposs�bletoprotecteverypotent�altargetfromeveryconce�vablemethodofattack,anumberofstrateg�escanbe implemented to maximize this ability. In addition, further refinement in the intelligence and information sharing arena will maximize the ability to respond quickly and efficiently if an �nc�dentoccurs.

Effect�veterror�sm-related�ntell�gence�nformat�onandcr�meprevent�on,protect�on,preparedness,andresponsedependont�melyandaccurate�nformat�onabouttheterror�sts,the�roperat�ons,the�rsupportmechan�smsandstructure,the�rtargets,andthe�rattackmethods.Th�s�nformat�onshouldserveasagu�deforeffortstorap�dly�dent�fyboth�mmed�ateandlong-termthreats;�dent�fypersons�nvolved�nterror�sm-relatedandcr�m�nalact�v�t�es;andgu�dethe�mplementat�onof�nformat�on-dr�venandr�sk-basedprevent�on,response,andconsequence-management.

S�nceSeptember11,bothresponseandprevent�onarecr�t�caltoanoverallstrategytosecureourhomelandanddecreasecr�m�nalactivities. September 11 also confirmed how critical local, state, tr�bal,andfederallawenforcementagenc�esandpubl�csafetyandpr�vatesectorent�t�esare�ncollect�ng�mportant�nformat�onand�ntell�gencethatult�mately�mpactsthenat�on’soverallab�l�tytopreventterror�sm-relatedandcr�m�nalact�v�t�es.Inrespond�ng

Fusion:

Turning

Information

and Intelligence

Into Actionable

Knowledge


toSeptember11andsubsequent�nc�dents(e.g.,theanthrax�ssue),�tbecameapparenthow�mportant�t�sto�ncorporatenontraditional collectors of data (e.g., fire and health entities) �ntoprevent�onefforts.Datafus�onrepresentsan�mportantpartofamechan�smthatcandramat�cally�mprove�nformat�onand�ntell�genceshar�ngbetweenallcomponentsandcollectorsof�nformat�on.

Asaresultoftheneedtoexchanged�versedatafromvar�oussources,fus�onemergedasthefundamentalprocesstofac�l�tatetheshar�ngofhomelandsecur�ty-andcr�me-related�ntell�gence.On the surface, it would appear that defining fusion is difficult. Althoughtheconcept�snewtomanylawenforcement,publ�csafety,andpr�vatesectorcommun�t�es,fus�on�snotnewtomanyother�ndustr�esandthem�l�tary.Infact,fus�onhasbeend�scussedandused�ntransportat�onandav�at�on;satell�te�mag�ng;meteorologyandweatherforecast�ng;sensory�mag�ng;andm�l�taryanddefenseact�v�t�esforyears.

Fusion refers to managing the flow of information and intelligence acrosslevelsandsectorsofgovernmentandpr�vate�ndustry.10Itgoesbeyondestabl�sh�ngan�ntell�gencecenterorcreat�ngacomputernetwork.Fus�onsupportsthe�mplementat�onofr�sk-based,�nformat�on-dr�venprevent�on,response,andconsequencemanagementprograms.Atthesamet�me,�tsupportseffortstoaddress�mmed�ateoremerg�ngthreat-relatedc�rcumstancesandevents.Datafus�on�nvolvestheexchangeof�nformat�onfromd�fferentsources,�nclud�nglawenforcement,publ�csafety,andthepr�vatesector.11Whencomb�nedw�thappropr�ateanalyses,�tcanresult�nmean�ngfulandact�onable�ntell�genceand�nformat�on.Thefus�onprocessturns�nformat�onand�ntell�gence�ntoknowledge.Thepr�maryemphas�soffus�on�sto�dent�fyemerg�ngterror�sm-relatedthreatsandr�sksaswellastosupportongo�ngeffortstoaddresscr�m�nalact�v�t�es.Thefus�onprocessw�ll:

Allowlocalandstateent�t�estobetterforecastand�dent�fyemerg�ngcr�meandpubl�chealthtrends.Supportmult�d�sc�pl�nary,proact�ve,r�sk-based,andcommun�ty-focusedproblemsolv�ng.Provide a continuous flow of intelligence to officials to assist �ndevelop�ngadep�ct�onofevolv�ngthreats.Improvethedel�veryofemergencyandnonemergencyserv�ces.

To illustrate the fusion process within a conceptualized fusion centerconcept,F�gure1dep�ctsad�str�butedcapab�l�ty,populatedbymult�pleandd�verse�nformat�onsources.Usersaccess the data via a common interface, extracting, analyzing, andd�ssem�nat�ng�nformat�onbasedonneedandcurrentdemands.Although�t�sant�c�patedthatfus�onandfus�oncentersw�llpr�mar�lybeusedforprevent�veandproact�ve

10 Terms and definitions mentioned in this document, including “fusion,” are specific to the fusion center initiative. Varying definitions of the same term may be utilized within the law enforcement intelligence, public safety, and private sector fields, and participants in the fusion center initiative should ensure that term definitions do not deconflict. Definitions of terms specified in this document can be found in Appendix F.11 Thefus�onofpubl�csafetyandpr�vatesector�nformat�onw�thanyfederal database containing personally identifiable information should be virtual through networking and utilizing a search function. Federal agenc�espart�c�pat�ng�nthefus�oncentershouldadheretoappl�cablefederallawsandregulat�ons.

measures,theprocessw�llalsobecr�t�cal�fan�nc�dentoccurs,providing information to responders as well as officials, media, and citizens. It is important to note that the fusion process is not asystemordatabase;�t�san�mportantpartofamechan�smbywh�chpart�c�pat�nglawenforcement,publ�csafety,andpr�vatesectorent�t�escanprov�deandrece�veenhanced�nformat�onfromafus�oncenter.

Cr�m�nalandterror�sm-related�ntell�gence�sder�vedbycollecting, blending, analyzing, and evaluating relevant �nformat�onfromabroadarrayofsourcesonacont�nualbas�s.There�snos�nglesourceforterror�sm-related�nformat�on.Itcancomethroughtheeffortsofthe�ntell�gencecommun�ty;local,state,tr�bal,andfederallawenforcementauthor�t�es;othergovernmentagenc�es(e.g.,transportat�onandhealthdepartments);thepr�vatesector;andthegeneralpubl�c.Inorderto�mplementaneffect�vefus�onprocess,anumberof�ssuesmustbeaddressed,�nclud�ngthefollow�ng:

The use of common terminology, definitions, and lexicon by allstakeholders.Up-to-dateawarenessandunderstand�ngoftheglobalthreatenv�ronment.Aclearunderstand�ngofthel�nkagesbetweenterror�sm-relatedandnonterror�sm-related�nformat�onand�ntell�gence.Clearly defined intelligence and information requirements that prioritize and guide planning, collection, analysis, and d�ssem�nat�onefforts.Cleardel�neat�onofroles,respons�b�l�t�es,andrequ�rementsofeachlevelandsectorofgovernment�nvolved�nthefus�onprocess.

Figure 1 – Fusion Process


Understand�ngandel�m�nat�ng�mped�mentsto�nformat�oncollect�onandshar�ng.Extens�veandongo�ng�nteract�onw�ththepr�vatesectorandw�ththepubl�catlarge.Connect�v�ty(techn�calandprocedural)w�thcr�t�cal�ntell�gencestreams,analys�scenters,commun�cat�oncenters,and�nformat�onrepos�tor�es.Extens�vepart�c�pat�onofsubject-matterexperts�ntheanalyt�calprocess.Capac�tytoensureaggress�veovers�ghtandaccountab�l�tytoprotectconst�tut�onalprotect�onsandc�v�ll�bert�es.

Throughtheuseoffus�oncentersandby�ntegrat�ngthesegu�del�nes,modeltemplates,pol�c�es,andtools,theoutstand�ng�ssuesh�nder�ngournat�on’sab�l�tytoseamlesslydevelopandshare information and intelligence will be minimized.

Fusion CentersTheab�l�tytocoord�nateeffect�veresponses�ntheeventofaterrorist attack is a significant challenge facing our nation. It �s�mperat�vethatallappropr�atemeanstocombatterror�sm,respondtoterror�stattacks,andreducecr�m�nalact�v�tybeemployed. This section will define fusion centers; summarize thebas�cfunct�onsofafus�oncenter;andprov�deasummarycompar�sonoffus�oncenters,�ntell�gencecenters,andemergencyoperat�onscenters.

A fusion center is a collaborative effort of

two or more agencies that provide resources,

expertise, and/or information to the center

with the goal of maximizing the ability to

detect, prevent, investigate, apprehend, and

respond to criminal and terrorist activity.

The primary components of a fusion center are

situational awareness and warnings that are

supported by law enforcement intelligence,

derived from the application of the intelligence

process, where requirements for actionable

information are generated and information is

collected, integrated, evaluated, analyzed, and

disseminated. Other key components resident

in the fusion center include representatives of

public safety, homeland security, the private

sector, and critical infrastructure communities.

Fus�oncentersarenottrad�t�onal�ntell�gencecentersnordotheyperformthesamefunct�onsasemergencyoperat�onscenters.Fus�oncentersaremult�d�sc�pl�nary,whereas�ntell�gencecenters

aretrad�t�onallylawenforcementcentr�c.EmergencyOperat�onsCenters(EOC)focusond�sasterrecovery(bothnaturalandman-made).It�s�mportanttonotethatalthoughthesecentersared�fferentandhaveun�quem�ss�ons,theymustworktogetherandunderstandeachothers’goalsandpr�or�t�es.Ifan�nc�dentoccurs,alloftheseresourcesw�llbeneededtosuccessfullyminimize loss and apprehend suspects. The fusion center prov�des�ntell�gencetotheEOCregard�ngthed�sasterorrelatedevents.Becauseofthe�nvestment,expert�se,andcapab�l�ty�ntegratedw�th�nafus�oncenter,plansandproceduresshould�ncludehoweachfus�oncenterw�llsupportthejur�sd�ct�on’semergencymanagementstructuredur�ngcr�ses.Furthermore,eachfus�oncentershouldmakeprov�s�onsforsupport�ngcr�s�smanagementandrecoveryoperat�onsasla�dout�ntheInc�dentCommandSystem(ICS),theNat�onalInc�dentManagementSystem(NIMS),andtheNat�onalResponsePlan(NRP).

Fus�oncentersembodythecoreofcollaborat�on.Collaborat�on�ncreasescapac�ty,commun�cat�on,andcont�nu�tyofserv�cewh�ledecreas�ngdupl�cat�on.12Asdemands�ncreaseandresourcesdecrease,collaborat�onbecomesanevermoreeffective tool to maximize resources and build trusted relat�onsh�ps.InarecentsurveyconductedbytheNat�onalGovernorsAssoc�at�on(NGA)CenterforBestPract�ces,respond�ngstatesrankedthedevelopmentofastate�ntell�gencefus�oncenterasoneofthe�rh�ghestpr�or�t�es.13 This is significant and�nd�catesaneedtoqu�cklyprov�de�nformat�on,mater�als,andgu�del�nestoass�st�nestabl�sh�ngandoperat�ngfus�oncenters.

As�llustrated�nF�gure2,thefus�oncenterconceptembracesthe collaboration of numerous resources, maximizing and streaml�n�ngoperat�ons,wh�lemov�ngjo�ntlytowardacommongoal. The figure depicts participating entities using MOUs to define their roles, responsibilities, and contributions toward center operat�ons.Theseresourcesfunnel�ntoacentrallocat�on,thefusion center. Here, authorized personnel use the resources and�nformat�ontoass�st�nvest�gat�veand�ntell�genceserv�ces,homelandsecur�ty,andpubl�csafetyoperat�onsandto�ntegratecr�t�cal�nfrastructurefunct�onsandpr�vatesectorpartnersh�ps.Part�c�pantsaresubjecttoallthepol�c�esandproceduresthatgu�decenteroperat�ons.Appropr�ate�nformat�onand�ntell�genceis then disseminated to authorized recipients and used to �nvest�gatecr�mesandproact�velyaddressthreats.

12 C.R.PetePetersen,M.Ed.,CommunityCollaboration,March4,2003.13 NGACenterforBestPract�ces,HomelandSecurityintheStates:MuchProgress,MoreWork,January24,2005.

Important intelligence that may forewarn of a

future attack may be derived from information

collected by local, state, tribal, and federal law

enforcement agencies; public safety agencies;

and private sector entities through crime control

and other normal activities, as well as by

people living and working in our communities.


Fus�oncentersw�llactasananalyt�calhub,process�ng,evaluat�ng,andd�ssem�nat�ngcr�t�cal�nformat�onforlawenforcement,publ�csafety,andpr�vatepartners,basedonacr�m�nalpred�cate,threat,orpubl�csafetyneed.Theyw�llfocusoncollaborat�onandanalys�sandw�llbecomearepos�toryforinformation that flows through the center, while ensuring state andfederalpr�vacylawsandrequ�rementsareadheredto.Ult�mately,fus�oncentersw�llbecomethecenterfor�nvest�gat�vesupport,�nformat�onand�ntell�genceshar�ng,homelandsecur�ty,andpubl�csafetyandpr�vatesectorpartners.

Fusion Center FunctionsThe principal role of the fusion center is to compile, analyze, andd�ssem�natecr�m�nal/terror�st�nformat�onand�ntell�genceandother�nformat�on(�nclud�ng,butnotl�m�tedto,threat,publ�csafety,lawenforcement,publ�chealth,soc�alserv�ces,andpubl�cworks)tosupporteffortstoant�c�pate,�dent�fy,prevent,and/ormon�torcr�m�nal/terror�stact�v�ty.Th�scr�m�nal�nformat�onand�ntell�genceshouldbebothstrateg�c(�.e.,des�gnedtoprov�degeneralgu�danceofpatternsandtrends)andtact�cal(i.e., focused on a specific criminal event). To be meaningful, thefus�oncentermustdomorethanaone-t�mecollect�onoflawenforcement�nformat�on.Itmust�ncludedevelop�ngthecapability to analyze on an ongoing basis law enforcement �nformat�onand�ntell�gencew�thother�mportant�nformat�on,suchaspubl�chealthandtransportat�on,basedonacr�m�nalpred�cate,threat,orpubl�csafetyneed.Thegoal�storap�dly�dent�fyemerg�ngthreats;supportmult�d�sc�pl�nary,proact�ve,andcommun�ty-focusedproblem-solv�ngact�v�t�es;supportpred�ct�veanalys�scapab�l�t�es;and�mprovethedel�veryofemergencyandnonemergencyserv�ces.

Oneofthepr�nc�paloutcomesofthefus�onprocessshouldbethe identification of terrorism-related leads—any nexus between cr�me-relatedandother�nformat�oncollectedbylocal,state,andprivate entities and a terrorist organization and/or attack. Many expertsbel�evethatthere�sah�ghprobab�l�tyof�dent�fy�ngterror�ststhroughprecursorcr�m�nalact�v�ty,�nclud�ng�llegaldrugoperat�ons,moneylaunder�ng,fraud,terror�sm,and�dent�tytheft.14The fusion process does not replace or replicate mission-specific �ntell�genceand�nformat�onmanagement.Itdoes,however,leverage�nformat�onand�ntell�gencedevelopedthroughtheseprocesses and systems to support the rapid identification of patterns and trends that may reflect an emerging threat. Some of therecommendedgoalsandfunct�onsforfus�oncenters�nclude:

Serveasthepr�marypo�ntofcontacttoreportcr�m�nal/terror�st�nformat�ontothelocalJo�ntTerror�smTaskForce(JTTF)andDHS’sHomelandSecur�tyOperat�onsCenter(HSOC).Includethecapab�l�tyofblend�nglawenforcement�nformat�onand�ntell�gence.Collect, analyze, and disseminate “all-crimes” information, so asto�dent�fyemerg�ngpatternsandtrends.Evaluateandreevaluatetheprocess,newdata,andemerg�ngthreats.Adoptandadheretoastatew�destrategytoexam�nethe�nformat�onexchangesofthestates’lawenforcementandhomelandsecur�typartners,�nclud�ngd�ssem�nat�onof�nformat�onbythestateHomelandSecur�tyAdv�sortolawenforcement.Ma�nta�nanup-to-datestatew�der�skassessment.Serveasarece�pt-and-d�ssem�nat�onhubforlawenforcement�nformat�onprov�dedbyfederalent�t�es,suchasthatprov�dedbytheFederalBureauofInvest�gat�on’sReg�onalDataExchange(R-DEx)andNat�onalDataExchange(N-DEx),whenoperat�onal,andDHS’sHomelandSecur�tyInformat�onNetwork(HSIN).

Eachoftheseareascanbeexpandedto�ncludeanumberofcr�t�caltasksandrespons�b�l�t�es.Tosuccessfullyach�evethese goals, the first responder and private community, along w�ththepubl�c,mustbeapartofthefus�oncenterconcept.The�ntegrat�onofnontrad�t�onalconsumersof�nformat�onand�ntell�gence�sakeycomponentofafus�oncenter.

Therespons�b�l�t�esoffus�oncentersare�mmense.Gu�del�nes,aswellassamplepol�c�esandtemplates,mustbedevelopedtoass�st�nestabl�sh�ngandoperat�ngfus�oncenters.

Functional CategoriesEverylevelandsector(d�sc�pl�ne)ofgovernmentandthepr�vatesectorshouldbe�ntegrated�ntofus�oncenters.Th�smayseeml�keadaunt�ngtask;however,funct�onalcategor�eshavebeendevelopedtoass�st�n�ntegrat�onefforts.Thesecategor�esarenotmeanttobeexhaust�ve;rather,theyprov�degovernancebod�esastart�ngplacetobeg�ncollaborat�onw�thd�fferentcomponentsandent�t�es.Eachfus�oncentershouldevaluate�tsneeds,threats,andconst�tuentstodeterm�newhatent�t�esshouldbe�ntegrated.Ent�t�esthatcompr�sethefunct�onalcategor�escanprov�defus�oncentersw�thboth

14 TheImpactofTerrorismonStateLawEnforcement,June2005,p.34.

Figure 2—Fusion Center Components


strateg�candtact�cal�nformat�on,�nclud�ngcr�metrendsforpart�cular�ndustr�esandpubl�csafetyagenc�es,susp�c�ousact�v�ty,andr�skassessments.Fus�ngth�s�nformat�on,basedon an identified threat, criminal predicate, or public safety need, w�thlawenforcement�ntell�gencew�llprov�decentersw�thamorecompletep�ctureofcr�meandterror�sm.Thefus�onofpubl�csafetyandpr�vatesector�nformat�onw�thlawenforcementdata should be virtual through networking and utilizing a search funct�on,thusensur�ngtheseparat�onoffederaldatathatcontains personally identifiable information.

Theoverarch�ngfunct�onalcategor�es�nclude:

Agr�culture,Food,Water,andtheEnv�ronmentBank�ngandF�nanceChemical Industry and Hazardous MaterialsCr�m�nalJust�ceEducat�onEmergencyServ�ces(non-lawenforcement)EnergyGovernmentHealthandPubl�cHealthServ�cesHosp�tal�tyandLodg�ngInformat�onandTelecommun�cat�onsM�l�taryFac�l�t�esandDefenseIndustr�alBasePostalandSh�pp�ngPr�vateSecur�tyPubl�cWorksRealEstateReta�lSoc�alServ�cesTransportat�on

Thesecategor�esoutl�nethetypesoflawenforcement�ntell�genceandpubl�csafetyandpr�vatesectorent�t�esto�nclude�ncollaborat�on.Typesof�nformat�onthatmaybeprov�dedtofusion centers include a suspicious fire that a fire department respondsto,anunusuals�cknessreportedatapubl�chealthdepartment,sp�kes�ncattled�seaseonafarm,orsusp�c�ousbank�ngact�v�tyreports.15Inadd�t�on,theseent�t�esshouldberec�p�entsof�nformat�onand�ntell�gencefromfus�oncenters,�nclud�ngthreatalertsandrelatedresponseefforts.

State StrategyFus�on�nvolveseverylevelandsector(d�sc�pl�ne)ofgovernment,pr�vatesectorent�t�es,andthepubl�c—thoughthelevelofinvolvement of some participants will vary based on specific c�rcumstances.Somed�sc�pl�nes,suchaslawenforcement,representacorecomponentofthefus�onprocessduetotherelat�onsh�pbetweencr�meandterror�smandthefactthat,�nmanycases,lawenforcementauthor�t�esarebestsu�tedtocoord�natestatew�deandlocalfus�on.TheHSACwork�nggrouprecommendedthatfus�oncentersbeestabl�shed�neverystate.The fusion process should be organized and coordinated on

15 An�n-depthl�stoftheent�t�esthatcompr�seeachofthefunct�onalcategor�esandvar�ousexamplesofthetypesof�nformat�ontheseent�t�escanprov�detofus�oncenterscanbefound�nAppend�xC.

astatelevel,andeachstateshouldestabl�shandma�nta�nananalyt�ccenter.Furthermore,eachstatefus�oncentershouldregularlycollaborateandcoord�natew�thotherstatefus�oncenterstoprevent�nformat�ons�losfromdevelop�ngw�th�nstates.Th�seffortw�llenhance�nformat�onand�ntell�genceshar�ng.

Thefunct�onsw�th�nastatefus�oncentershouldbebasedonthe�ntell�gencecycle,�nclud�ngrequ�rements,pr�or�t�es,identified collectors, indicators for the collectors to be aware of, collect�onmechan�sms,methodsofanalys�s,andproduct�onandd�ssem�nat�onofreportsandassessmentstotheappropr�aterec�p�ents.Publ�csafetyandpr�vatesectorent�t�es,alongw�ththegeneralpubl�c,areacr�t�calpartofth�splanandshouldbe�ncorporated�ntothe�ntell�gencecycleascollectorsandrec�p�entsof�nformat�on,basedonthe�r�nformat�onrequ�rements.

Eachmajorurbanareamaywanttoestabl�shas�m�larcapac�ty,ensur�ngthat�t�sl�nkedw�ththestatecenter.Otherlocal�t�es,tr�balgovernments,andeventhepr�vatesectorshoulddevelopaprocessto�nterl�nktothesestatefus�onefforts.Thepubl�cshouldbeengagedthroughpubl�ceducat�onprogramsthatdescr�bewhattheyshouldlookforandwhattodo�ftheyobservesusp�c�ousact�v�ty.

Efforts should be scalable and organized and managed on ageograph�cbas�ssoadjustmentscanbemadebasedonchanges�ntheenv�ronment.And,wh�lenat�onalgu�del�nesshouldgu�detheprocess,theactualtechnolog�esandoperat�onalprotocolsusedby�nd�v�dualjur�sd�ct�onsshouldbebased on the specific capabilities.

Information FlowW�ththeestabl�shmentoffus�oncentersaroundthecountry,�t�s�mportanttohaveaclearunderstand�ngofwhoshouldrece�veand disseminate information and how it flows both vertically and horizontally among all local, state, tribal, and federal government agenc�esandpr�vateent�t�es.Successfulcounterterror�smeffortsrequ�rethatlocal,state,tr�bal,andfederallawenforcementagenc�es,alongw�thpubl�csafetyandpr�vatesectorent�t�es,haveaneffect�ve�nformat�onshar�ngandcollaborat�oncapab�l�ty.Th�sw�llensuretheycanseamlesslycollect,collate,blend,analyze, disseminate, and use information and intelligence.

Intell�genceand�nformat�onshouldbeprov�dedbasedontheneedsoftheuser.Althoughfus�oncenterpart�c�pantsmay�ncludeemergencymanagement,publ�chealth,transportat�on,publ�cworks,andthepr�vatesector,eachd�sc�pl�new�llnotneed the same level of detail (e.g., fire officials and emergency management officials may not need the specific suspect �nformat�onthatlawenforcementrequ�res).Fus�oncentersshouldalsoexchange�nformat�onw�thappropr�atefederalpartnerssuchasDOJ(e.g.,FederalBureauofInvest�gat�on,Jo�ntTerror�stTaskForce,andU.S.Marshals),DHS(e.g.,U.S.CustomsandBorderProtect�on,U.S.Imm�grat�onandCustomsEnforcement,andEmergencyAlertNetworks),H�ghIntens�tyDrug Trafficking Areas (HIDTA), Regional Information Sharing Systems(RISS)centers,theCentersforD�seaseControlandPrevent�on(CDC),andother�nformat�onshar�ng�n�t�at�ves.16

16 For�nformat�ontobeexchanged,refertotheInformat�onShar�ngEnv�ronment(ISE)requ�redundertheIntell�genceReformandTerror�smPrevent�onAct(IRTPA)of2004,http://www.gpoaccess.gov/ser�alset/creports/�ntel_reform.html.


A Phased ApproachThedevelopmentoffus�oncentergu�del�neswasseparated�ntothreephases—lawenforcement�ntell�gence,publ�csafety,andthepr�vatesector.Thelawenforcement�ntell�gencephasedevelopedthefoundat�onforthegu�del�nes.Aseachphasewasestabl�shed,prev�ousphasepart�c�pantswere�ncluded�nfocusgroupmeet�ngs.Th�sensuredthatthegu�del�neswereappl�cabletoallcomponentsw�th�nafus�oncenter.Inadd�t�on,th�sallowedford�scuss�onstooccurbetweenallcomponentrepresentat�vesto�dent�fyconcernsw�ththegu�del�nes,�tsmethodology,andhowtoeffect�vely�ncorporateeachcomponent.Theact�v�t�esandrecommendat�onsofeachfocusgroupw�llbeexpla�nedfurther�nthereport.

Phase I—Law Enforcement Intelligence ComponentBackgroundEarly�n2002,theInternat�onalAssoc�at�onofCh�efsofPol�ce(IACP)convenedaCr�m�nalIntell�genceShar�ngSumm�tattendedbylawenforcementexecut�vesand�ntell�genceexpertsfromacrossthecountry.Part�c�pantsagreedthatalllawenforcementagenc�esmustworktogethertowardacommongoal:develop�ngthecapab�l�tytogather�nformat�on,produce�ntell�gence,andsharethat�ntell�gencew�thotherlawenforcementandpubl�csafetyagenc�es.

TheSumm�tledtothecreat�onoftheGlobalIntell�genceWork�ngGroup(GIWG).TheGIWG,oneoffour�ssue-focusedwork�nggroupsundertheGlobalJust�ceInformat�onShar�ngIn�t�at�ve(Global),17wastaskedw�threcommend�nganat�onal�ntell�genceplan.MembersoftheGIWG�ncluderepresentat�vesfromlawenforcement and justice organizations at all levels of government.

TheGIWGpromoted�ntell�gence-ledpol�c�ng,recommendedleverag�ngex�st�ngsystems,andaddressedthecurrentandfutureneedsoflawenforcementagenc�eswhendevelop�ngtheNationalCriminalIntelligenceSharingPlan(NCISP).18

17 Formore�nformat�onregard�ngGlobal,v�s�twww.�t.ojp.gov.18 AcopyoftheNationalCriminalIntelligenceSharingPlancanbe

Intell�gence�stheproductofsystemat�cgather�ng,evaluat�on,andanalys�sofrawdataon�nd�v�dualsoract�v�t�essuspectedofbe�ng,orknowntobe,cr�m�nal.Intell�gence-ledpol�c�ng�sthecollect�onandanalys�sof�nformat�ontoproducean�ntell�genceendproductdes�gnedto�nformlawenforcementdec�s�onmak�ngatboththetact�calandstrateg�clevels.19

TheGIWGproposed28recommendat�onsandact�on�temsfor�mplementat�on,wh�chareoutl�ned�ntheNCISP.AneventwasheldattheU.S.DepartmentofJust�ceonMay14,2004,topublicly support the recommendations and the Plan. Officials fromlocal,state,andfederallawenforcementagenc�eswerepresent.Therecommendat�onsconta�ned�nthePlanperta�ntoaw�despectrumof�ntell�gence�ssuesandconcerns,�nclud�ng:

StandardsformanagementInst�tut�onal�smandoutreachProtect�onofr�ghtsandpr�vacyStandardsforprocess

obta�nedathttp://�t.ojp.gov/top�c.jsp?top�c_�d=93.19 Append�xAoftheNationalCriminalIntelligenceSharingPlan,October2003.

“. . . we must create new ways to share

information and intelligence both vertically,

between governments, and horizontally, across

agencies and jurisdictions . . . efforts with the

Global Intelligence Working Group to create a

National Criminal Intelligence Sharing Plan . . .

is a helpful and welcome response.”

Former Homeland Security Secretary

Tom Ridge

October 23, 2003, Philadelphia, PA

Background and Methodology


Sharing of classified informationStandardsfortra�n�ngConnect�v�ty

Global’sCr�m�nalIntell�genceCoord�nat�ngCounc�l(CICC),20�nsupportofDOJ’seffortstodevelopfus�oncentergu�del�nes,recommendedthecreat�onoftheLawEnforcementIntell�genceFus�onCenterFocusGrouptofurthermanyofthetenetsoutl�ned�nthePlan.

MethodologyThe first phase of the FusionCenterGuidelines�n�t�at�vewastheestabl�shmentoftheLawEnforcementIntell�genceFCFG.Thefocusgroupwascomposedofrepresentat�vesfromavar�etyoflocal,state,andfederallawenforcementagenc�esacrossthecountry,�nclud�nglawenforcementpersonnel�nvolvedw�thdevelop�ngfus�oncenters,andofferedexamplepol�c�esandmater�alstoass�st�nth�s�n�t�at�ve.

Throughoutthemeet�ngsandsubsequentcommun�cat�ons,part�c�pantswereencouragedtod�scussandsharebestpract�cesresult�ngfromtheestabl�shmentandoperat�onofthe�rcentersor�n�t�at�ves.Thefocusgrouprecommendedthatthe�ntell�gencecomponent�ncludeallcr�metypesandthatcentersprov�deanarrayof�ntell�genceserv�ces.Thegroupalsorecommended

20 TheCr�m�nalIntell�genceCoord�nat�ngCounc�l(CICC)wasestabl�shed�nresponsetorecommendat�onsconta�ned�ntheNCISP.TheCICC�scomposedoflocal,state,andfederalent�t�esandadv�sestheU.S.AttorneyGeneralonmattersrelat�ngtocr�m�nal�ntell�gence.

thatcentersbescalablebasedontheneedsofthec�ty,state,orreg�onandshouldconducttact�cal,operat�onal,andstrateg�c�ntell�gencefunct�ons�nsupportofcr�m�nal�nvest�gat�ons.

Thefocusgroup’sworkdevelopedVers�on1,conta�n�ng17fus�oncenterlawenforcement�ntell�gencegu�del�nes.Thesegu�del�nesarethefoundat�onforthe�ntell�gencecomponentoffus�oncentersandtake�ntell�genceshar�ngtothenextlevel.Inadd�t�on,thefocusgroupdevelopedsamplepol�c�es,tools,andaresourceCDtoass�stagenc�es�n�ntegrat�ngthegu�del�nes.TheVers�on1gu�del�neswerepresentedtoandsupportedbytheCICC,theGIWG,theGlobalAdv�soryComm�ttee,andDOJ’sJust�ceIntell�genceCoord�nat�ngCounc�l(JICC).Thesegu�del�neswerealsoapprovedbyeachcomponentoftheU.S.DepartmentofHomelandSecur�ty(DHS).Vers�on1oftheFusionCenterGuidelineswaspubl�shed�nJuly2005.

Concurrentw�ththeeffortsoftheLawEnforcementIntell�genceFocusGroupweretheeffortsoftheHomelandSecur�tyAdv�soryCounc�l’s(HSAC)Intell�genceandInformat�onShar�ngWork�ngGroup.TheHSACwork�nggroupdevelopedareportthatrevolvedaround�ntegrat�ngthefus�onprocess�ntofus�oncenters.TheresultoftheLawEnforcementIntell�genceWork�ngGroupandtheIntell�genceandInformat�onShar�ngWork�ngGroupwasajo�n�ngofeffortstoexpandtheFusionCenterGuidelinesto�ncludethepubl�csafetyandpr�vatesectorcomponents.HSACalsoestabl�shedaPr�vateSectorInformat�onShar�ngTaskForcethataddressedtheobstaclesof�nformat�onshar�ngbetweenthefederalgovernmentandthepr�vatesector.Th�staskforcealsoprov�dedrecommendat�onstoalleviate the identified information sharing obstacles.21

Phase 2—Public Safety ComponentMethodologySubsequenttothecomplet�onofVers�on1oftheFusionCenterGuidelines,Phase2ofthe�n�t�at�vebegan,wh�ch�nvolved�ncorporat�ngthepubl�csafetycomponent�ntofus�oncenters.Even�ntheplann�ngstages,Phase2wasacollaborat�veeffortbetweenDOJandDHS.Th�scollaborat�ondemonstratedthecomm�tmentofthefederalgovernmenttoensureaun�tedandcomprehens�vesetofgu�del�nesfor�ntegrat�ngpubl�csafetyw�thlawenforcement�ntolocal,state,reg�onal,andfederalfus�oncenters.Thepubl�csafetycomponent�sessent�altofus�oncentersfor:

Precursor�nformat�onregard�ngcr�me,�nclud�ng�nformat�onon diversion drugs and hazardous material.F�rstresponders,whocanprov�denontrad�t�onal�nformat�onto fusion centers (e.g., fire and health departments).Informat�ononsusp�c�ouscr�m�nal-relatedact�v�ty.

Part�c�pants�nthePubl�cSafetyFCFG�ncludedmembersfroma variety of public safety components, including fire, health, transportat�on,agr�culture,andenv�ronmentalprotect�on.Alsopart�c�pat�ng�nthemeet�ngwereselectmembersoftheLawEnforcementIntell�genceFCFG.

The first task the focus group addressed was to define what public safety is with respect to a fusion center. The focus group defined

21 Acopyofth�sreportcanbefoundonthecompan�onFusionCenterGuidelinesresourceCD.

“The Plan represents law enforcement’s

commitment to take it upon itself to ensure that

we do everything possible to connect the dots,

whether it be a set of criminal dots or a set of

terrorist dots.”

Former U.S. Attorney General

John Ashcroft

May 14, 2004, Washington, DC


publ�csafetyent�t�esasgovernment-basedagenc�esthatrespondtocontemplatedorcompletedcr�m�nalacts,man-madeornaturald�sasters,publ�chealth�ssues,or�ntent�onalactsthatthreatenord�rectly�mpacttheessent�alfunct�onsofsoc�ety.Examplesofthesefunct�ons�ncludeeconom�c,transportat�on,commun�cat�ons,publ�cworks,power/energy,andfoodsupply.Alsod�scusseddur�ngthemeet�ngweretheconceptofthefus�oncenterandthedefinition of the fusion process with a focus on how to incorporate thepubl�csafetycomponent�ntothecenterandprocess.

The focus group identified many public safety entities that could potentially be integrated into a fusion center and categorized them�ntofunct�onalcategor�es.Thecategor�esare�ncludedasanappend�xtothegu�del�nesand,althoughnotcomprehens�ve,serve as a starting point for operating fusion centers to utilize when�ntegrat�ngpubl�csafetyent�t�es.22Whenjur�sd�ct�onsareestabl�sh�ngafus�oncenter,thefunct�onalcategor�esshouldbeevaluated and the applicable entities should be identified and �ncludedaspartners.

TheconsensusofthePubl�cSafetyFCFGwasthatthe17gu�del�nes�nVers�on1prov�deathoroughexplanat�onandgu�danceforjur�sd�ct�onsestabl�sh�ngandoperat�ngafus�oncenter.Thefocusgrouprecommendedadd�ng�nVers�on2ofthegu�del�nesamorecomprehens�veexplanat�onofthefus�onprocessandexamplesofhowpubl�csafetyent�t�escanbe�ncorporated�ntotheprocess.

ImplementationCollaborat�on�sv�taltothesuccessoffus�oncenters.Thepubl�csafetycomponentcanprov�defus�oncentersw�th�nformat�onthatw�lladdvaluetothe�ntell�genceandfus�onprocesses.Add�t�onally,fus�oncenterscanprov�depubl�csafetyent�t�esw�th�nformat�onand�ntell�gencethat�mpactthem,suchasbombthreats,health-related�nformat�onand�ntell�gence,and/ortransportation-related information. Public safety entities (fire, EMS, transportation) often impact the lives of citizens, and ensur�ngthattheseent�t�esma�nta�ns�tuat�onalawarenessandareact�vely�nvolved�nthefus�oncenter�s�mportanttoprotect�ngthe lives of citizens. Fusion center governance members should evaluatetheneedsofthe�rjur�sd�ct�onto�dent�fywhatpubl�csafetyent�t�esshouldbe�nvolved�nthefus�oncenterw�thpart�cularfocusonhealthserv�ces,government,transportat�on,educat�on,cr�m�naljust�ceandsecur�ty,soc�alserv�ces,andpubl�cworks.

Publ�csafetypartnersshouldbe�ncorporated�ntoallphasesofthe�ntell�gence/fus�onprocess.Ent�t�esw�th�nth�ssectorrepresentnontrad�t�onal�nformat�ongatherersandcanprov�defus�oncentersw�thbothstrateg�candtact�cal�nformat�on,�nclud�ngcr�me-relatedtrends(e.g.,prescr�pt�ondrugfraudandfire investigations); additional response capabilities (fire and hazmat); and suspicious activity (e.g., unusual diseases reported athosp�tals).Publ�csafetyent�t�esshouldalsobe�ncluded�nthed�ssem�nat�onandevaluat�onphases.

Becauseofthegroundbreak�ngeffortsofthefus�oncenter,part�c�pat�ngent�t�esmayneedawareness-leveltra�n�ngofhowthefus�oncenterworks,anexplanat�onofthe�ntell�gencecycle,and

22 Acompletel�st�ngofeachofthefunct�onalcategor�esandcorrespond�ngent�t�es,w�thexamplesofthetypesof�nformat�onthattheseent�t�escanprov�detofus�oncenters,canbefound�nAppend�xC.

how public safety entities fit into these efforts. This awareness tra�n�ngshouldbeoffered�n�t�allytoagencyheadstorece�vesupportfor�ntegrat�onandthendel�veredtothe�nformat�ongatherersand�nd�v�dualswhow�llsupportthefus�oncenter.

Thereareavar�etyofwaysthat�ntegrat�onofthepubl�csafetycomponentcanoccur.Wh�lethegu�del�nesfullyaddress�ntegrat�onopportun�t�es,thefus�oncenterandpubl�csafetyagenc�esshoulddeterm�newhetherafull-t�merepresentat�veoral�a�sonw�llbeused�nthecenterforrece�v�ngandshar�ng�nformat�onand�ntell�gence.

Phase 3—Private Sector ComponentMethodologyPhase3oftheFusionCenterGuidelines�n�t�at�ve�nvolvedthe�ntegrat�onofthepr�vatesector.DOJandDHSonceaga�ncollaboratedw�ththedevelopmentofthePr�vateSectorFCFG.Th�sfocusgroupwascompr�sedofvar�ouspr�vatesector�ndustryandassoc�at�onrepresentat�ves,�nclud�ngtour�sm,bank�ngandfinance, maritime, and security. The private sector is a crucial componentoffus�oncenters.Approx�mately85percentofthenat�on’scr�t�cal�nfrastructure�sownedbythepr�vatesectorand

vulnerabletocr�me,suchasterror�smandfraud.

Accord�ngtoastudyjo�ntlyconductedbytheCounc�lofStateGovernmentsandEasternKentuckyUn�vers�ty,s�nceSeptember11,2001,�nteract�onsbetweenthepr�vatesectorandstate law enforcement agencies have significantly increased. Specifically, private companies are communicating with agencies aboutthesecur�tyofthe�rfac�l�t�esandworkersandthe�r�nteract�onsw�threpresentat�vesofcorporatesecur�ty.23Th�s�nteract�onfurtherdemonstratesthenecess�tyofpr�vatesectorpart�c�pat�on�nfus�oncenters.Thepr�vatesectorownsthefac�l�t�esthatmaybetargetsofcr�me,�nclud�ngterror�sm,andlawenforcementhasthe�nformat�onand�ntell�genceregard�ngthecr�m�nalevent.

23 TheImpactofTerrorismonStateLawEnforcement,June2005,p.23.

“We will build a national environment that

enables the sharing of essential homeland

security information. We must build a

‘system of systems’ that can provide the right

information to the right people at all times.

Information will be shared ‘horizontally’ across

each level of government and ‘vertically’

among federal, state, and local governments;

private industry; and citizens.”

Source: The President’s National Strategy for

Homeland Security


Thepurposeofth�sfocusgroupwasto�dent�fy�ssuesandconcernsthatshouldbeaddressedwhenfus�oncenters�ncorporatethepr�vatesector.Several�mped�mentsto�nformat�onshar�ngbythepr�vatesector�ncludethepotent�alforunauthorized release of their information, lack of control of data, poss�b�l�tyofpropr�etaryd�sclosure,andconcernsregard�ngtheinformation being used to impose civil fines in regulatory areas of government. One of the recurring themes identified by the group wastheneedforongo�ngcollaborat�onbetweenthepr�vatesectorandfus�oncenters.Inadd�t�on,thegroupacknowledgedthatthe�ntegrat�onofthepr�vatesector�ntofus�oncenters�sagroundbreak�ngendeavor.Toensuresuccessful�ntegrat�on,atwo-wayeducat�onprocesswasrecommendedbetweenfus�oncentersandthepr�vatesector.

Thefocusgroupalsorecommendedexpand�ngthefunct�onalcategor�es�n�t�allydevelopedbythePubl�cSafetyFCFGto�ncludepr�vatesectorent�t�es.Th�sexpans�onw�llpromotecomprehens�vecollaborat�onw�th�nfus�oncenters.Thefocusgroupbasedthecategor�esonthenat�onalInformat�onShar�ngAnalys�sCenters(ISAC)componentsandaddedcategor�es,asneeded.

Furthermore,thefocusgroupagreedontheneedto�ncorporatepr�vatesectorsubject-matterexperts�ntofus�oncenterstobe utilized routinely or as needed, depending on the size andfunct�onofthefus�oncenter.Throughth�s�ntegrat�on,centersw�llhaveadd�t�onalresourcestousewhenthreatsaredevelopedregard�ngthepr�vatesector.Moreover,subject-matterexpertscanprov�defus�oncentersw�ththreatassessmentresults, specifically risks that have been identified for various �ndustr�es.Anotherrecommendat�onofthefocusgroupwasthedevelopment and utilization of Non-Disclosure Agreements (NDA) w�th�nfus�oncenters.FocusGroupmembersfeltNDAswouldprov�dethepr�vatesectorw�thanotherlevelofsecur�tywhenshar�ng�nformat�onw�thfus�oncenterpersonnel.

Datafromthepr�vatesector�san�mportantelement�nthefus�onprocess;�ta�ds�nthedevelopmentofaccurateandcomprehens�veproducts.Eventhoughthereareavar�etyof�ndustr�esthatfallunderth�scomponent,thegreaterthe�nvolvement,thegreaterthesuccessofthefus�oncenter.

ImplementationThepr�vatesectorcanofferfus�oncentersavar�etyofresources,including industry-specific subject-matter experts who can provide expertise when specific threats have been identified (e.g.,cybersecur�tysubject-matterexpertscanprov�deass�stancerelat�ngtocomputerv�ruses,worms,andhack�ng�nc�dents);r�skassessment�nformat�on(e.g.,ther�sksassoc�atedw�thcerta�npr�vatesectoroperat�ons);susp�c�ous�nc�dentsandact�v�ty�nformat�on;andcr�t�cal�nfrastructure�nformat�on(e.g.,thelocat�onofcr�t�cal�nfrastructurenodes,operat�onal�nterdependenc�es,bu�ld�ngbluepr�nts,andwhat,�fany,hazardous materials are housed there).

When�ntegrat�ngthepr�vatesector,thegovernancebodyshouldfirst assess the private sector environment within the jurisdiction ofthefus�oncentertodeterm�newhatent�t�esshouldbe�ncorporated�ntothefus�oncenters.Quest�onsthatcenterstaffshouldanswer�nclude:

Whatpr�vatesectorassoc�at�onsarew�th�nthejur�sd�ct�on?

What�ndustr�esarelocatedw�th�noraffectthejur�sd�ct�on?Whatarethemajoreconom�cdr�versandemployers�nthejur�sd�ct�on?What�ndustr�esandcr�t�cal�nfrastructureserv�cesareessent�alforemergencyserv�cesorsusta�n�ngqual�tyofl�fefor citizens?Whatgroupsorassoc�at�onscancollect�velyrepresentan�ndustryw�th�nthefus�oncenters(e.g.,profess�onalassoc�at�ons)?Whatarepast,current,andemerg�ngthreatsand/orr�sksthataffect the private sector, and which specific entities do they affect?Whatarethe“m�ss�oncr�t�cal”ent�t�esthatshouldbe�ncluded�nfus�oncentercollaborat�on(e.g.,telecommun�cat�onsandenergy)?Whatent�t�escanprov�defus�oncentersw�tht�melyandact�onable�nformat�onto�ncorporate�ntothe�ntell�gencecycleandthecenter’soperat�ons?Whatpr�vatesectorent�t�esarecurrentlywork�ngw�thgovernmentagenc�es?

Fus�oncenterleadersh�pshouldcoord�natew�thregulatoryagenc�estodeterm�newhattypeof�nformat�on�sava�lablefromthepr�vatesectorandcanbeprov�dedto,oraccessedby,thefus�oncenter.Theseregulatoryagenc�eshavealreadyestabl�shedwork�ngrelat�onsh�psw�thpr�vatesectorent�t�esandmaya�d�npr�vatesectorpart�c�pat�on.

Whenpartner�ngw�thfus�oncenters,thepr�vatesectorshoulddetermine how integration will occur. Will the organization supply full-t�mepersonneltothefus�oncenter,w�llvar�ouspr�vatesectorent�t�escreatearotat�ngpr�vatesectordesk,orw�llpr�vatesectorent�t�esestabl�shal�a�sonw�ththefus�oncenterthatw�llrece�veandshare�nformat�on?

Once the applicable industries and organizations have been identified, it is recommended that fusion center officials conduct a ser�esofmeet�ngsw�ththepr�vatesectorent�t�es.Fus�oncenterheads may desire to initially meet with chief executive officers, or the�requ�valent,toprov�deanoverv�ewofwhatthefus�oncenter�sandthe�mportanceofcollaborat�onbetweenthefus�oncenterand the private sector. Once company and organization leaders affirm their commitment to fusion centers, private sector security d�rectorsandfus�oncentermanagersmayd�scusstheplanof�ntegrat�on,�nclud�ng�nformat�onrequ�rements;who,�fanypersonnel,wouldbelocatedw�th�nthefus�oncenter;andthe�rrespect�veneeds.

Two-wayawarenesstra�n�ngbetweenthefus�oncenterandthepr�vatesectorshouldbe�mplemented,�nclud�nganoverv�ewofwhatpr�vatesectorent�t�escanprov�detofus�oncenters;whatfus�oncenterscanprov�detothepr�vatesector;andthepurposeoffus�oncenters,�nclud�ngtheNationalCriminalIntelligenceSharingPlan(NCISP)andthe�ntell�genceandfus�onprocesses.

Toensurecont�nuedpart�c�pat�on,regularmeet�ngsshouldbeheldw�thpr�vatesectorent�t�estokeepthem�nformedofact�v�t�esofthecenter.It�s�mperat�vethatfeedbackoccurwhenpr�vatesectorent�t�esprov�de�nformat�ontofus�oncenters.Clos�ngthe�nformat�onloopw�lla�d�ncont�nued�nvolvementbyallpart�c�pants.


The NCISP and the Intelligence and Fusion ProcessesJustificationAfterthetrag�ceventsofSeptember11,2001,lawenforcementexecut�vesand�ntell�genceexpertsnat�onw�deagreedthatlawenforcementagenc�esmustworktogethertodevelopthecapab�l�tytogather�nformat�on,produce�ntell�gence,andsharethat�ntell�gencew�thotherlawenforcementandpubl�csafetyagenc�es.TheNationalCriminalIntelligenceSharingPlan(NCISPorPlan)wasdeveloped�nresponsetoth�sneed.

TheNCISPprov�desmodelstandardsandpol�c�es,recommendsmethodologies for sharing classified reports, and recommends a nationwide sensitive but unclassified (SBU) communications capab�l�tyforcr�m�nal�ntell�genceshar�ng.ThePlan�sal�v�ngdocumentthatprov�deslocal,state,tr�bal,andfederallawenforcementagenc�esthetoolsandresourcesnecessaryfordevelop�ng,gather�ng,access�ng,rece�v�ng,andshar�ng�ntell�gence.It�sthebluepr�ntthatlawenforcementagenc�escanemploy to support their crime-fighting and public safety efforts wh�leleverag�ngex�st�ngsystemsandnetworks.ThePlan�snotasystemoranetwork,nor�s�ttechnology-based.It�stheframeworkforthedevelopmentandshar�ngof�ntell�gence.Itsupportscollaborat�onandfostersanenv�ronment�nwh�challlevelsoflawenforcementworktogetherto�mprovethesafetyofournat�on.

TheNCISP�sfoundedontheconceptof�ntell�gence-ledpol�c�ngandencourageslawenforcementagenc�estoembraceand�ntegrate�ntell�gence-ledpol�c�ngelements�nthe�refforts.Proact�ve�nsteadofreact�ve,�ntell�gence-ledpol�c�ngallowslawenforcementto:24

Descr�be,understand,andmapcr�m�nal�tyandthecr�m�nalbus�nessprocess.Make�nformedcho�cesanddec�s�ons.Engagethemostappropr�atetact�cs.

24 Ronald Bain, “The Dynamics of Retooling and Staffing: Excellence andInnovat�on�nPol�ceManagement,”Canad�anPol�ceCollege,2003.

Targetresources.Disrupt prolific criminals.Art�culateacasetothepubl�cand�ncourt.

Intell�gence-ledpol�c�ngalsoprov�desadvantagestopubl�csafetyandpr�vatesectorcomponents,�nclud�ngtrends�ncr�m�nalact�v�tyand�ncreased�nformat�onshar�ngw�thlawenforcementtoaddresscr�meprevent�onefforts.

Cr�m�nal�ntell�gence�stheresultofaprocess�nvolv�ngplann�ngandd�rect�on,�nformat�oncollect�on,process�ng/collat�on,analys�s,d�ssem�nat�on,andreevaluat�onof�nformat�ononsuspected criminals and/or organizations. This sequential process�scommonlyreferredtoasthe�ntell�genceprocess(orcycle).Therearevar�ousmodelsofthe�ntell�genceprocess�nuse;however,mostmodelsconta�nthebas�cstepsdep�cted�nthefollow�nggraph�c:

Guideline 1 Adhere to the National Criminal Intelligence Sharing Plan (NCISP) and other sector-specific information sharing guidelines, and perform all steps of the intelligence and fusion processes.

The Intelligence Process


Intelligence ProcessThe�ntell�genceprocess�sthemeansofdevelop�ngrawinformation into finished intelligence products for use in decision making and formulating policies/actions. The first step, planning andd�rect�on,�nvolves�dent�fy�ngtheneedfordata.Agencymembersshouldengage�naprocessofdec�d�ngwhattheywanttoknow(orwhattheyneedtocollect)beforetheycollect�t,ortheymayobta�n�nd�scr�m�nate,unfocused�nformat�on.

Collect�on�sthegather�ngoftherawdataneededtoproduce�ntell�genceproducts.Datamaybecollectedfrommanysources,�nclud�ngbutnotl�m�tedtopubl�crecords,theInternet,confidential sources, incident reports, and periodicals.

Thenextstep,process�ngandcollat�on,�nvolvesevaluat�ngthe�nformat�on’sval�d�tyandrel�ab�l�ty.Collat�onenta�lssort�ng,combining, categorizing, and arranging the data collected so relat�onsh�pscanbedeterm�ned.

Analys�stransformstherawdata�ntoproductsthatareuseful.Th�s�salsothefunct�onthatseparates“�nformat�on”from“�ntell�gence.”It�sth�sv�talfunct�onthatmakesthecollect�oneffort beneficial. Without this portion of the process, we are left w�thd�sjo�ntedp�ecesof�nformat�ontowh�chnomean�nghasbeenattached.Thegoal�stodevelopareportthatconnects�nformat�on�nalog�calandmean�ngfulmannertoproduce

an�ntell�gencereportthatconta�nsval�djudgmentsbasedonanalyzed information.25

D�ssem�nat�on�salsov�tal.W�thoutd�ssem�nat�ngthe�ntell�gencedeveloped,�t�spo�ntlesstocollect�t.Tobeuseful,the�ntell�genced�ssem�natedmustbet�melyandcred�ble.D�ssem�nat�onmustalsobeevaluatedbasedonar�ghttoknowandtheneedtoknow.Ther�ghttoknowmeanstherec�p�enthasthelegalauthor�tytoobta�nthe�nformat�onpursuanttocourtorder,statute,ordec�s�onallaw.Theneedtoknowmeanstherequestor has the need to obtain information to execute official respons�b�l�t�es.26Whend�ssem�nat�onoccurs,�t�s�mperat�veto�ncludeallcomponentsoffus�oncenters,�nclud�ngthepubl�csafetyandpr�vatesectors.

The final step involves evaluation/reevaluation of the process performedandtheproductsproduced.Evaluat�on/reevaluat�onassessescurrentandnew�nformat�on,ass�sts�ndevelop�nganawarenessofposs�bleweakareasaswellaspotent�althreats,and strives to eliminate previously identified weaknesses that havebeenhardenedasaresultofthefus�onprocess.Overall,th�sstepprov�desanopportun�tytorev�ewtheperformanceoreffect�venessofthefus�oncenter’s�ntell�gencefunct�on.27

Asprev�ously�nd�cated,fus�oncentershave�mprovedlawenforcement’s ability to fight crime and terrorism. Ensuring thateachstepw�th�ntheprocess�sfollowedw�llfac�l�tatetheproduct�onofuseful�ntell�gence.Nontrad�t�onalcollectorsofinformation, e.g., the private sector, fire, public works, and publ�chealth,arev�taltosuccessfullycompletethe�ntell�genceprocess.Wh�lelawenforcementhas�ntell�gence�nformat�onandexpert�se,thepubl�csafetyandpr�vatesectorshavethe�nformat�onsystems,processes,and�nfrastructurethatmaybetargetsofcr�meandterror�sm.Further,fus�on,throughmanag�ngthe flow of information and intelligence across all levels and sectorsofgovernment,�ntegratesthe�ntell�genceprocesstoaccompl�shth�sshar�ng.The�ntell�genceprocessprov�desaframeworkforthefused�nformat�ontobeturned�nto�ntell�gence.Fusion centers utilize the intelligence process to analyze threat-related�ntell�genceand�nformat�on.Thesecentersarenots�mply�nformat�oncollect�onhubsbutvenuestobr�ngtogetherappropr�atepartnerstopreventcr�me-andterror�sm-related�nc�dents.

The Fusion ProcessThestagesofthefus�onprocessgenerallycorrelatew�ththe�ntell�gencecycle.TheHomelandSecur�tyAdv�soryCounc�l’s(HSAC)IntelligenceandInformationSharingInitiative:HomelandSecurityIntelligenceandInformationFusionreportdeta�lsthestagesoffus�onandhowto�mplementtheprocess.28 The first stage,themanagementandgovernancestage,establ�shesthefoundat�onforfus�on�nthat�toverv�ewstheneedfora

25 BobMorehouse,“TheRoleofCr�m�nalIntell�gence�nLawEnforcement.”Mar�lynB.Peterson(Manag�ngEd.),BobMorehouse,andR�chardWr�ght(Eds.),Intelligence2000:RevisingtheBasicElements,Sacramento,CA:LawEnforcementIntell�genceUn�tandLawrencev�lle,NJ:Internat�onalAssoc�at�onofLawEnforcementIntell�genceAnalysts,Inc.,2000,pp.1-12.26 Ib�d,p.9.27 TheNationalCriminalIntelligenceSharingPlan,2003,p.7.28 Th�sreport,�nclud�ngacomprehens�veexplanat�onofthefus�onprocess,canbefound�n�tsent�rety�nAppend�xD.


managementstructure,whothestakeholdersare,andfus�oncentergoalsandobject�ves.

Thesecondstage,plann�ngandrequ�rementsdevelopment,laysthefoundat�onforthetypesof�nformat�onthatw�llbecollected.Th�sphaseestabl�sheswhere�nformat�onw�llcomefromandthetypesof�nformat�onthefus�oncenterw�llcollect.Italsoprov�descollect�onl�m�tat�onsandpr�vacy�ssuesthataffectcollect�onandshar�ngof�nformat�on.

Collect�on�stheth�rdstageoftheprocessdur�ngwh�chtheplann�ngandrequ�rementsdevelopmentstagebecomesoperat�onal.Th�s�swhen�nformat�on�scollectedfromvar�oussources,�nclud�nglawenforcementagenc�es,publ�csafetyagencies (e.g., health, fire, and transportation), and the private sector.Th�sstage�sessent�alforfus�oncenterstobeeffect�ve.

Thefourthstage,analys�s,�ss�m�lartotheanalys�sphase�nthe�ntell�gencecycle�nthat�t�sdur�ngth�sstagethatthe�nformat�oncollected�sturned�ntoact�onable�ntell�gence.Oneofthegoalsofthefus�oncenterdur�ngth�sstage�sto�dent�fytrendsor�nformat�onthatw�llpreventaterror�stattackorothercr�m�nalact�v�ty.

The fifth stage is dissemination, tasking, and archiving. During this stage, the information that has been collected and analyzed �sthend�ssem�natedtostakeholders.

Thes�xthstage�sreevaluat�on.Thepurposeofth�sstage�sforthefus�oncenterandstakeholderstoensurethatwhat�sbe�ngcollected, analyzed, and disseminated is factual, timely, and relevant.It�sdur�ngth�sstagethattweaksand�mprovementsaremadetothefus�onprocess.

The last stage is the modification of the requirements stage (Stage2).Afterreevaluat�onoccursand�mprovementsorchanges are identified, this stage allows the improvements to be implemented and the process refined.29

Often,gaps�nthe�ntell�genceprocessex�st.Toass�st�nclos�ngthesegaps,theFederalBureauofInvest�gat�on(FBI)developedatemplatetoass�stagenc�es�n�dent�fy�ngandtrack�ng�ntell�gencegaps.AsummaryoftheFBI’sIntell�genceRequ�rementsandacopyofthetemplatecanbefound�nLawEnforcementIntelligence:AGuideforState,Local,andTribalLawEnforcementAgencies(Carter,November2004).30Acopyofth�sgu�de�s�ncludedontheresourceCD.It�srecommendedthatfus�oncenterscreateaformal�ntell�genceand�nformat�onrequirements process that prioritizes and guides the intelligence funct�on.

29 IntelligenceandInformationSharingInitiative:HomelandSecurityIntelligenceandInformationFusionreport.30 Ava�lableontheCommun�tyOr�entedPol�c�ngServ�ces(COPS)Webs�teatwww.cops.usdoj.gov/Default.asp?Item=1404.

Issues for ConsiderationWhen�mplement�ngport�onsoftheNCISP,cons�derthesestepstohelpestabl�shorenhancean�ntell�gencecomponentofafus�oncenter:

Recognize your responsibilities and lead by example.Establ�sham�ss�onstatementandapol�cytoaddressdevelop�ngandshar�ng�ntell�gencedataw�th�nyouragency.Connecttoyourstatecr�m�naljust�cenetworkandreg�onal�ntell�gencedatabases,andpart�c�pate�n�nformat�onshar�ng�n�t�at�ves.Ensurepr�vacy�sprotected�npol�cyandpract�ce.AccesslawenforcementWebs�tes,subscr�betolawenforcementl�stservs,andusetheInternetasan�nformat�onresource.31

Prov�deyouragencymembersw�thappropr�atetra�n�ngonthecr�m�nal�ntell�genceprocess.Becomeamember�nyourReg�onalInformat�onShar�ngSystem(RISS)center.BecomeamemberoftheFBI’sLawEnforcementOnl�ne(LEO).Partnerw�thpubl�candpr�vate�nfrastructureownersandoperators.Part�c�pate�nlocal,state,andnat�onal�ntell�genceorganizations.Part�c�pate�ntheU.S.DepartmentofHomelandSecur�ty’s(DHS)HomelandSecur�tyInformat�onNetwork(HSIN)Program.Ensure the fusion center is fully utilizing the jurisdiction’s ex�st�ngnetworksand�nformat�onrepos�tor�esforcr�m�nalandhazard information.

Available Resources on Fusion Center CD

10S�mpleStepstohelpyouragencybecomeapartoftheNationalCriminalIntelligenceSharingPlanHSAC’sIntelligenceandInformationSharingInitiative:HomelandSecurityIntelligenceandInformationFusionreportLawEnforcementIntelligence:AGuideforState,Local,andTribalLawEnforcementLawEnforcementIntell�genceUn�t(LEIU)Aud�tCheckl�stNationalCriminalIntelligenceSharingPlanreport

31 Prior to entering the public Internet as a law enforcement officer or intelligence organization, consult with jurisdiction and department legal adv�sorstoensurecompl�ancew�thanypol�cyorregulat�onconcern�nglawenforcement�ntell�genceuseoftheInternetfor�nformat�onshar�ng.Furthermore, using the official government identity and information systemforInternetsearch�ngcanposeasecur�tyr�sktotheagencynetworkandsubjectofthesearch.Explored�fferentwaystoavo�dsuchr�sksw�thcompetenttechn�calandlegalauthor�t�es.



Mission Statement and GoalsJustificationA mission statement is a written statement of the organization’s purpose,suchasenhanc�ngpubl�csafety,shar�ng�nformat�on,orresolv�ngcr�m�nal�nvest�gat�ons.It�s�mportanttohaveam�ss�onstatementbecause�tfocuseseffortsand�sthefoundat�onofallthedec�s�onsthatfollow.Am�ss�onstatementcanalso�nsp�repeople in the organization and inform customers of the benefits and advantages of what the organization offers and is the first step�neducat�ngent�t�esaboutthecenterand�tsserv�ces.

Ifacenterhasaclearunderstand�ngof�tsshort-andlong-termgoals,�tw�llbeeas�erto�ntegrateefforts.Goalsarewhatyouwanttoaccompl�sh.Object�vesarehowyouarego�ngtogetthere.Goalsshouldbemeasurableandobservable.Theyshould have specific achievable steps (objectives) with built-in accountab�l�tyforaccompl�shment.Goalsshouldbeh�ghenoughtochallengethecenterbutreal�st�cenoughtobeatta�nable.Un�versallawenforcementgoals�ncludefourmajordes�redoutcomes:

Thereduct�onofthe�nc�denceofcr�me.Thesuppress�onofcr�m�nalact�v�ty.Theregulat�onofnoncr�m�nalconduct.Theprov�s�onofserv�ces.32

Fus�oncentersw�llhavemanydemandsplacedonthem,and�t�s�mportanttohaveclearpr�or�t�es.Forexample,�nordertoproperlydevelopam�ss�onstatementandgoals,centersshouldprioritize tasks such as analytical services, homeland security �ssues,and�nvest�gat�vesupport.

Issues for ConsiderationWhencreat�ngam�ss�onstatementandgoals,cons�der:

Develop�ngthecenterm�ss�onstatementandgoalscollaborat�velyw�thpart�c�pat�ngent�t�esasth�sw�llcreateownersh�pandass�st�n�dent�fy�ngthepr�maryrole(s)ofthe

32 www.commun�typol�c�ng.org/goal.html.

1.2.3.4.

organization.Identifying center customers and their needs and defining centerpr�or�t�espr�ortodraft�ngthem�ss�onstatementandgoals.Prioritizing the intelligence function to address threats posed in specific fusion center jurisdictions.Integrat�ng�ntell�gence-ledpol�c�ngtosupportcustomerneeds, define tasks, and prioritize functions. Utilizing vision statements and/or guiding principles to focus efforts.Using the center mission to promote the organization and supportgrantrequestsandfund�ng.Includ�ngthem�ss�onstatement�ntheMemorandumofUnderstand�ng(MOU)(seeGu�del�ne5).Including five to ten points that outline the benefits of public safetyandpr�vatesectorpart�c�pat�on�nthefus�onprocess.

Elements of Mission StatementsM�ss�onstatementsshouldbeclearandconc�se.Theyshould�ncludethepr�marypurpose,pr�or�ty,androlesofthecenter.M�ss�onstatementsshouldcommun�catetheessenceoftheorganization so that stakeholders and the public are clear on thepurposeand�ntentofthecenter.Ensurethatthem�ss�onstatement includes the name of the agency or organization, the typeofagency,whattheagencydoes,andwhomtheagencyserves.It�scr�t�calthattheappropr�atet�meandcomm�tmentbedevotedtodevelop�nganadequatem�ss�onstatement.Agoodm�ss�onstatementw�llprov�destrateg�cv�s�onandd�rect�onforthecenter.

Oncethem�ss�onstatement�screatedandapproved,�tshouldnotrequ�rerev�s�onveryoften.Thegoalsandobject�vesdevelopedbythecentershouldallbel�nkedtothem�ss�onstatement.Thesew�llbetheshort-termmeasuresusedtogaugewhether the center is fulfilling the stated mission. However, if the m�ss�onstatementbecomes�nappropr�ate,�rrelevant,oroutdatedor�fthecenter’sd�rect�onchanges,them�ss�onstatementshouldberev�sedaccord�ngly.

Guideline 2 Develop and embrace a mission statement and identify goals for the fusion center.


Example Mission StatementsUpstate New York Regional Intelligence Center (UNYRIC)To advance the efficient, timely, and accurate exchange of �nformat�onbetweenallNewYorkstatelawenforcementagenc�es.TheUNYRICfocusesonallaspectsofcr�m�nalact�v�ty�nthe54count�esouts�detheNewYorkC�tyareaand�nteractsw�thlawenforcementagenc�esnat�onw�de.

Arizona Counter Terrorism Information Center (ACTIC)To protect the citizens by ensuring the resiliency of critical infrastructure operations throughout Arizona by enhancing and coord�nat�ngcounterterror�sm�ntell�genceandother�nvest�gat�vesupporteffortsamongpr�vatesectorandlocal,state,tr�bal,andfederallawenforcementagenc�es.

Rockland County Intelligence Center (RCIC)Toprov�de�ntell�gencetolawenforcementagenc�esbaseduponthecollect�on,evaluat�on,andanalys�sof�nformat�onthatcan�dent�fycr�m�nalact�v�ty.Th�s�ntell�gencecanbepresented�ntheformof:

Strateg�c�ntell�gence,wh�chaddressesex�st�ngpatternsoremerg�ngtrendsofcr�m�nalact�v�ty.Tactical intelligence, which pertains to a specific event that canbeused�mmed�ately.

Georgia Information Sharing and Analysis Center (GISAC)Toserveasthefocalpo�ntforthecollect�on,assessment,analys�s,andd�ssem�nat�onofterror�sm�ntell�gencerelat�ngtoGeorg�a.

State Terrorism Threat Assessment Center (STTAC)—CaliforniaTocoord�natethecollect�onofant�terror�sm�ntell�gencedata,thed�ssem�nat�onofthat�ntell�gencetolawenforcementagenc�es,andtheuseofant�terror�sm�ntell�genceresources.

Sample Mission StatementsThefollow�ngaresampletemplatesthatcentersmayusewhendevelop�ngam�ss�onstatement:

Thefus�oncenter�sapubl�c-pr�vatepartnersh�p,cons�st�ngoflocal,state,tr�bal,andfederallawenforcementandpubl�csafetyagenc�esandthepr�vatesector.Itactsasan�nformat�onshar�nggatewayw�ththe�ntenttoass�stlawenforcement[homelandsecur�tyagenc�esoragenc�estaskedw�thhomelandsecur�tyfunct�ons]todetect,prevent,andsolvecr�mes.

Thefus�oncenter�sapubl�c-pr�vatepartnersh�pamonglocal,state,tr�bal,andfederallawenforcementandpubl�csafetyagenc�esandthepr�vatesector.Itcollects,evaluates,analyzes, and disseminates information and intelligence to the lawenforcementcommun�ty[homelandsecur�tyagenc�esoragenc�estaskedw�thhomelandsecur�tyfunct�ons]�nat�mely,effect�ve,andsecuremanner.


AStaircasetoStrategicPlanning:Mission,TheCommun�tyPol�c�ngConsort�um,www.commun�typol�c�ng.org/m�ss�on.html


GovernanceJustificationGovernance may be defined as the set of organizational regulat�onsandstandardsexerc�sedbymanagementtoprov�destrateg�cd�rect�onandensureobject�vesareach�eved,r�sksaremanagedappropr�ately,andresourcesareusedrespons�bly.33Establ�sh�ngagovernancestructurecreatesasupportedenv�ronmentthatframestheab�l�tyforthecentertofunct�onandoperate,ass�gntasks,allocateandmanageresources,anddevelop and enforce policy. Governance creates a centralized bodytorev�ewandendorse�ssuesaffect�ngoperat�ons.Membersact�ngasthegovernancebodyareambassadorstotheprogramandcarrythemessagetothe�ragenc�esandconst�tuents.Governanceprov�desaforumforpart�c�pantstovo�ceconcerns,offersuggest�ons,andmakedec�s�ons.Itenhancesrelat�onsh�ps,�ncreaseseffect�veness,andprov�desleadersh�pandcohes�venessamongpart�c�pants.

Thegovernancestructureensuresanequalopportun�tyforallpart�c�pat�ngagenc�esanduserstohaveownersh�p�nthedec�s�on-mak�ngprocess.Thegovern�ngbodyshouldbe�nclus�vetolawenforcement,publ�csafety,andpr�vatesectorpartners,therebyensur�ngtheeffect�venessofthefus�oncenter.Th�scanbeach�evedthroughassess�ngthejur�sd�ct�ontodeterm�newhatcomponents,andent�t�esw�th�nthecomponents,shouldbe�ncluded�nthefus�oncenterandgovernancebody.Throughthegovernancestructure,agenc�escanstrateg�callyplanforcenteroperat�onsandfutureenhancements,aswellas�dent�fyobstaclesandofferresolut�ons.

Issues for ConsiderationWhencreat�ngagovernancestructure,cons�der:

Allow�ngpart�c�pantstohave�nput�ntheestabl�shmentofagovernancestructurecomposedoflawenforcement,publ�csafety,andpr�vatesectorstakeholders.Collaborat�ngw�ththeJo�ntTerror�smTaskForce(JTTF),theAttorneyGeneral’sAnt�-Terror�smAdv�soryCounc�l(ATAC),

33 Office of Justice Programs (OJP) Web site, www.�t.ojp.gov.

theU.S.DepartmentofJust�ce(DOJ),theU.S.DepartmentofHomelandSecur�ty(DHS),andotherstateent�t�es,localauthor�t�es,andrelevantent�t�estoestabl�shprocess.Composing the governing body of high-level officials who havethepowerandauthor�tytocomm�tthe�rrespect�veagency’sresourcesandpersonneltothecenter.Identifying private sector organizations in the jurisdiction to �nclude�nthegovernancebody.Establ�sh�nganadv�sorycomm�tteecomposedofpr�vatesectorleadersh�p,whow�llprov�derepresentat�onandadv�cetothegovern�ngbody.Includ�ngmembersfromtheInformat�onShar�ngandAnalys�sCenters(ISAC).34

Defining the management structure to include what entity overseesthecenters,managestheoperat�ons,andcoord�natesda�lyact�v�t�es.Maintaining a governance structure that is reasonable in size yetensuresrepresentat�onofallagenc�esthatcompr�sethecenter.Creat�nganeffect�veandt�melymechan�smtocommun�catedec�s�onsmadebythegovern�ngbodytopart�c�pantsandcenterpersonnel.Evaluat�nghowpol�t�cal�ssuesandcl�matemay�mpactcentersupportandoperat�ons.Establ�sh�ngoperat�onalandtechn�calcomm�ttees.Establ�sh�nganovers�ghtcomm�tteetoensure,amongotherth�ngs,thatthe�ntell�genceprocess�sproperlyfollowed.Establ�sh�ngapr�vacycomm�tteethatw�lll�a�sew�thcommun�typr�vacyadvocacygroupstoensurec�v�lr�ghtsandpr�vacyprotect�on.Develop�ngbylawsforoperat�onsofthegovernancestructure.

34 ISACs are sector-specific centers that coordinate the sharing of terror�sm-related�nformat�on.More�nformat�ononISACscanbefoundatwww.dhs.gov.

Guideline 3Create a representative governance structure that includes law enforcement, public safety, and the private sector.


CommitteesGovern�ngbod�esmayemploycomm�tteestohelpexecuteandadheretocenterpol�c�esandprocedures,aswellasto�dent�fy,rev�ew,develop,and/or�mplementnewprogramsorpol�c�es.Execut�vecomm�tteessetpol�cy,makecr�t�caldec�s�ons,andcomm�tresources.Operat�onalcomm�tteesmaybeaskedtofocus on specific policies, such as purge and retention or privacy (seeGu�del�ne8).Thesetypesofcomm�tteesmaybeaskedtodevelopfund�ngstrateg�esor�dent�fygrantopportun�t�es.Techn�calcomm�tteesw�llfocusontechn�calstandards,cr�t�cal�nfrastructureoperat�on,andsecur�ty.Underthesecomm�ttees,subcomm�tteesmaybeusedtoconductdeta�ledresearchandanalys�s,ult�matelytobr�ngrecommendat�onstothegovern�ngbodyforrev�ewandendorsement.35

Toa�d�nthecomplete�ntegrat�onofthepr�vatesector�ntothegovern�ngbody,�t�srecommendedthatanadv�sorycomm�tteebeestabl�shed.Th�scomm�ttee,composedofpr�vatesectororganizations and associations, will ensure that critical private sectorent�t�es,aswellaspr�vatesecur�tymanagers,arerepresentedboth�nthefus�oncenterand�nthegovernancestructure.

Fus�oncentersshouldcons�derestabl�sh�nganovers�ghtcomm�tteethatreportsd�rectlytothegovernancebody.Th�scomm�tteew�llberespons�bleforprov�d�ngovers�ghtontheday-to-day operations of the fusion center, including proper utilization ofthe�ntell�genceandfus�onprocesses.

Example Governance StructuresRockland County Intelligence Center (RCIC)The county executive, sheriff, Office of Fire and Emergency Serv�ces,andthePol�ceCh�efsAssoc�at�onofRocklandCountyarepermanentmembersofthegovernancebodyfortheRocklandCountyEmergencyOperat�onsCenter(EOC).Intheeventofanemergency,thecenter,operat�ngw�th�ntheparametersoftheNat�onalInc�dentManagementSystem(NIMS),requestsadd�t�onalpersonnel(health,publ�cut�l�t�es,andpr�vatesecur�ty)torespondtothecenter,asneeded.Thesepersonnel have been previously identified and trained as center representatives and are utilized based on the type of emergency, e.g.,publ�chealth,terror�sm,orweather-related.

TheRCICOvers�ghtComm�ttee�scompr�sedofpol�cech�efschosenbytheRocklandCountyPol�ceCh�efsAssoc�at�on(localrepresentat�ves),thecountysher�ff,andd�str�ctattorney(countyrepresentat�ves).

Allagenc�esrepresented�nboththeEOCandtheRCICmeetonaregularbas�stod�scussareasofconcernandworkcollect�velytoenhancetheeffect�venessoflawenforcementandthecounty’semergencypreparedness�n�t�at�ves.

35 KellyJ.Harr�s,GovernanceStructures,RolesandResponsibilities,September2000(Updated/Re�ssued2004).

Iowa Law Enforcement Intelligence Network (LEIN)IowaLEIN�sgovernedbyaseven-memberexecut�veboard,s�xofwhom are local law enforcement officers who are elected annually bythe�rfellowLEINmembersfromacrossthestate.Theseventhmemberandcha�rpersonoftheexecut�veboard�sthestateLEINcoord�nator (aspec�alagentw�th the IowaDepartmentofPubl�cSafety’sIntell�genceBureau).

State Terrorism Threat Assessment Center (STTAC)—CaliforniaTheStateTerror�smThreatAssessmentCenter(STTAC)�sapartnersh�poftheCal�forn�aDepartmentofJust�ce,theCal�forn�aHighway Patrol, the California Office of Homeland Security, andotherstateandfederalagenc�es.Itprov�desstatew�deassessments,�nformat�ontrack�ng,pattern-analys�sproducts,andgeograph�creportl�nkages,aswellasreg�onal�nvest�gat�vesupportthroughoutthestate.Italsoprov�desCal�forn�a’ssen�orleaderswith situational awareness of identified threats along with constant accesstothelatestlocal,state,andnat�onal�ntell�genceproducts.

TocomplementtheSTTAC,Cal�forn�ahascreatedfourmutuallysupport�ngReg�onalTerror�smThreatAssessmentCenters(RTTAC).The�rareasofrespons�b�l�tym�rrorthoseofthefourFederalBureauof Investigation (FBI) Field Offices in the state. In some cases, they arecolocatedw�ththeFBI’sJo�ntTerror�smTaskForcestohelpminimize reporting conflicts, while facilitating the coordination of �nformat�onamongtheSTTAC,RTTACs,andtheFBI.

Governance TemplateThefollow�ngexampleofferscentersastart�ngpo�ntfordevelop�ngagovernancestructure.F�gure3�llustratesathree-t�eredapproach.Thebottomlevelrepresentsstaffmembersass�gnedtoperformthefus�on/�ntell�genceprocessandprov�de�nvest�gat�vesupport.Thesemembersmaycomefromavar�etyofagenc�esandrepresentthecoreofcenteroperat�ons.Here,data�ntegrat�onandanalys�sw�lltakeplace.Personnelmayinclude intelligence analysts and officers. The middle section representstheday-to-daymanagementofthecenter.Italso�ncludesadm�n�strat�vestaff,suchascomputersupportstaffand

Figure 3—Fusion Center Governance Structure Example


legalserv�ces.Insomecases,th�ssect�onmay�ncludeafac�l�tymanager.Thetopsect�onrepresentspol�cyandd�rect�on.Th�ssect�on�ssmaller,�nd�cat�ngaselectgroupof�nd�v�dualsfromeachpart�c�pat�ngent�tywhohavebeendes�gnatedaspartofthegovern�ngstructureorboard.The�llustrat�onshows�nformat�onflowing top down and bottom up.

Developing BylawsAccord�ngtoTheLegalGuideforAssociationBoardMembers,bylaws are defined as “an important association corporate legaldocumentthatconst�tutestheagreementbetweentheassoc�at�onand�tsmembers.Properlydraftedbylawssetforththe essential organizational and operational provisions governing theassoc�at�on.”36Bylawsarejustoneexampleofagovern�ngmechanism that a center may utilize to enforce organizational rules.Abylawssampledocument�sprov�dedontheresourceCD.

36 JamesG.Seely,TheLegalGuideforAssociationBoardMembers,Schne�der,1995,p.71.

Parliamentary ProceduresThegovernanceboardmaywanttomakeuseofparl�amentaryprocedurestocreateaneffect�vegovern�ngprocess.ProceduressuchasRobert’sRulesofOrdercanbeveryhelpful�n�ntroduc�ng,debat�ng,anddec�d�ngon�ssues.ThereareanumberofWebs�tes,suchaswww.rulesonl�ne.comthatconta�nthefulltextand/orsummary�nformat�onregard�ngRobert’sRulesofOrderandparl�amentaryprocedures.


BylawsSampleTemplateBoardGu�del�nes,www.mapnp.org/l�brary/boards/boards.htmGlobalJust�ceInformat�onShar�ngIn�t�at�veAdv�soryComm�tteeBylaws,http://�t.ojp.gov/documents/GACBylaws.pdfOrganization and Association Resource ListParl�amentaryProcedures,www.rulesonl�ne.com



CollaborationJustificationTo maximize intelligence sharing, all levels of law enforcement andpubl�csafetyagenc�esandthepr�vatesectormustcommun�cateandcollaborate.Theobject�ve�stoleverageresourcesandexpert�sewh�le�mprov�ngtheab�l�tytodetect,prevent,andapprehendterror�stsandothercr�m�nals.Foster�ngacollaborat�veenv�ronmentbu�ldstrustamongpart�c�pat�ngent�t�es,strengthenspartnersh�ps,andprov�des�nd�v�dualaswellasacollect�veownersh�p�nthem�ss�onandgoalsofthecenter.TheNationalCriminalIntelligenceSharingPlanspeakstoth�saswell:“Shar�ng�sfoundedupontrustbetweenthe�nformat�onprov�derandthe�ntell�genceconsumer.Suchtrust�smostoftenfosteredonan�nterpersonalbas�s;therefore,lawenforcementtaskforcesandotherjo�ntworkendeavorssucceedwherecolocated,�nterspersedpersonnelfromd�fferentagenc�esandjobtypesconveneforacommonpurpose.”37

Foster�ngacollaborat�veenv�ronment�snotonly�mportanttoshar�ng,collect�ng,develop�ng,andd�ssem�nat�ng�ntell�gencebutalsotoshar�ngdec�s�onsandownersh�p.Itd�scoverssolut�onsandexpandscapac�ty.Inanenv�ronmentwheresomeresourcesaredecreas�ngwh�ledemandsare�ncreas�ng,collaborat�onhasbecomeevenmoreessent�al.Thepurposeofcollaborat�on�sto�ncreasecapac�ty,commun�cat�on,andcont�nu�tyofserv�cewh�ledecreas�ngdupl�cat�on.38Akeytothesuccessoffus�oncenters�stoensurethatfeedbackoccursbetweenthefus�oncenterandtheent�t�esthatprov�de�nformat�onand�ntell�gence.Inherent�nacollaborat�veenv�ronment�stwo-waycommun�cat�on;ent�t�esthatprov�de�nformat�ontofus�oncentersshouldalsorece�ve�nformat�onfromfus�oncenters.Th�sw�llresult�nbuy-�nfromallpart�c�pantsandw�lla�d�nthesuccessofthe�nformat�onshar�ngenv�ronment.Fus�oncentersshouldalsocont�nuallyseekoutreachopportun�t�estoensurethatpubl�csafetyagenc�esandthepr�vatesectorarerepresented,therebymeet�ngtheneedsofthe�rconst�tuents.

37 NationalCriminalIntelligenceSharingPlan,November2004,p.9.38 C.R.PetePetersen,M.Ed.,“Commun�tyCollaborat�on,”March4,2003,www.commun�tycollaborat�on.net.

Successfulcollaborat�on�scont�ngentuponatrust�ngenv�ronment.Fus�oncentersshouldseektoestabl�shan�nformat�onshar�ngsystemthata�ds�ncollaborat�on,wh�leensur�ngthesecur�tyofthe�nformat�onw�th�nthesystemandthesystem�tself.Th�senv�ronmentshouldalsobeequ�ppedtohandlevar�oustypesof�nformat�onthatpubl�csafetyandthepr�vatesectorsubm�t,�nclud�ngpubl�c,sens�t�ve,propr�etary,andsecret�nformat�on.Th�senv�ronmentmay�ncludee-ma�l,av�rtualpr�vatenetwork,asecuredInternets�te,l�stservs,orface-to-facemeet�ngs.Collaborat�onbeg�nsw�th�nterpersonalrelationships, and fusion centers should institutionalize these relat�onsh�psthroughongo�ngd�alogueand�nformat�onsharing. Issue-based collaborative techniques may be utilized by the fusion center when a specific threat is identified. These techn�quesallowthepr�vatesectortochange�tspart�c�pat�onwithin the fusion center, based on the identified threat. For example,atransportat�onent�tymayhaveal�a�son�nthefus�oncenter, but if a threat is identified that affects transportation, that organization may provide full-time participation until the threat is neutralized.

Thereareavar�etyofpubl�csafetyandpr�vatesectorent�t�esto�nclude�nfus�oncenters.Eachjur�sd�ct�onhasd�fferentneeds,andcollaborat�onw�llbebasedontheseneeds.Fus�oncentersshouldseektonetworkw�thvar�ouspubl�csafetyand

Guideline 4Create a collaborative environment for the sharing of intelligence and information among local, state, tribal, and federal law enforcement agencies, public safety, and the private sector.


private sector organizations and associations. The greater theeffortbythefus�oncenter,thegreaterthe�ncorporat�onandpartnersh�pw�thpubl�csafetyandthepr�vatesector.Examples of these organizations and associations include InfraGard,SectorCoord�nat�ngCounc�ls(SCC),39Informat�onShar�ngandAnalys�sCenters(ISAC),40andtheUn�tedStatesPubl�c-Pr�vatePartnersh�p(USP3).41Overarch�ngfunct�onalcategor�eshavebeendeveloped�nwh�ch�nd�v�dualagenc�es,companies, and organizations can be grouped together. Though notcomprehens�ve,thesecategor�esandaccompany�ngent�t�esserveasafoundat�onandw�lla�dfus�oncenters�ndeterm�n�ngwhatent�t�esshouldbe�nvolved�nthecenter.Governancebod�esshould�dent�fytheneedsandvulnerab�l�t�es,organizations with a large employee base, and major economic dr�versw�th�nthejur�sd�ct�onofthefus�oncenter.Thegoal�stodeterm�newhatent�t�esshouldpart�c�pateandbe�ntegrated�ntothefus�oncenter.Toensuretheeffect�venessofcollaborat�onw�th�nthefus�oncenter,l�nesofcommun�cat�onshouldbeestabl�shedw�ththevar�ousent�t�esthatmakeupthecategor�esaccord�ngtotheneedsofthefus�oncenterandjur�sd�ct�on.Al�stofthefunct�onalcategor�esandassoc�atedent�t�es�slocated�nAppend�xCofth�sreport.

Anexampleofeffect�vecollaborat�on�stheTexasCoastalReg�onAdv�sorySystem(TCRAS).TCRAS�saJo�ntTerror�smTaskForce(JTTF)�n�t�at�veand�susedtoqu�cklyd�ssem�nate�nformat�ontolawenforcementpartners,aswellasothercompan�esandagenc�esthatarerespons�bleforcr�t�cal�nfrastructureoperat�ons�nthearea.42TCRASdemonstratesaneffect�ve�nformat�onshar�ngenv�ronmentthat�ncorporatesthelawenforcement,publ�csafety,andpr�vatesectorcomponentsofafus�oncenter.

39 TherolesofSectorCoord�nat�ngCounc�ls(SCC)aretoserveasas�ngleforum�ntotherespect�vesectorfortheent�rerangeofhomeland security issues; institutionalize the sector’s coordination of pol�cydevelopment,sector-w�destrategy,andplann�ng;ensureprogrampromulgat�onand�mplementat�on;mon�torsectorprogress;prov�deprov�s�onsofbestpract�cesandgu�del�nes;developrequ�rementsfor�nformat�onshar�ng,research,anddevelopment;andserveasthepo�ntofcross-sectorcoord�nat�on(HomelandSecurityInformationSharingBetweenGovernmentandthePrivateSector,August10,2005,p.17).40 Add�t�onal�nformat�ononSCCsandISACscanbefoundatwww.dhs.gov.41 TheUn�tedStatesPubl�c-Pr�vatePartnersh�p(USP3)(formerlyknownastheU.S.DepartmentofHomelandSecur�ty’s(DHS)HSIN-CI)was�mplementedasaDHSprogramthat�sreg�onallyadm�n�steredandgovernedby�tspr�vateandpubl�cmembers.Currentmembersh�p�sapprox�mately40,000,n�netypercentofwh�charefromthepr�vatesector,who are actively using the programs vertical and horizontal information shar�ngstrateg�esforlocal,reg�onal,andnat�onalrout�ne�nformat�onsharing and all-hazards 24/7 alerts and warnings. Due to its success, DHSandtheFederalBureauofInvest�gat�on(FBI)w�llcont�nuetojo�ntlysponsorandgrowtheprogramnat�onally,w�thagoalof200,000members.42 Add�t�onal�nformat�ononTCRAScanbefoundatwww.tcras.org.

Issues for ConsiderationCollaboration PrinciplesAsuccessfulcollaborat�onmustcont�nuallyprov�devalueto�tspart�c�pants,customers,andconst�tuency.Tofosterandenhancecollaborat�on,cons�der�mplement�ngthefollow�ngpr�nc�ples:

Ma�nta�n�ngad�versemembersh�pto�ncluderepresentat�vesfromlocal,state,tr�bal,andfederallawenforcement;allsectorsofpubl�csafety;andkeypr�vatesectorcompan�esand organizations.Includ�ngpr�vatesectorassoc�at�onswhen�ncorporat�ngthepr�vatesector.TwoexamplesareFlor�daF�rstandCh�cagoF�rst,bank�ngcoal�t�onscreatedtoworkw�thgovernment agencies to help financial institutions prepare for nat�onald�sastersandterror�sm.43

Utilizing a phased approach when integrating private sector ent�t�estoaccurately�dent�fyandaddresstheneedsoftheent�t�es.Develop�ngandpart�c�pat�ng�nnetwork�nggroupsandorganizations that exist locally, regionally, statewide, nat�onally,and�nternat�onally.Work�ngw�thJTTF,Ant�-Terror�smAdv�soryCounc�l(ATAC),theU.S.DepartmentofJust�ce(DOJ),DHS,otherstateandlocal entities, and other relevant organizations or groups.Comp�l�ngacontactl�stofpubl�csafetyandpr�vatesectorrepresentat�ves,�nclud�ngafter-hoursnumbers.Conduct�ngregularmeet�ngsforthepurposeofcollaborat�onand�nformat�onshar�ng.Establ�sh�ngproceduresforma�nta�n�ngthecont�nu�tyofpersonal, organizational, and institutional relationships.Educat�ngandtra�n�ngthelawenforcement,publ�csafety,andpr�vatesectorcommun�t�esonthe�ntell�genceandfus�onprocessesandfus�oncenteroperat�ons.Educating and liaising with elected officials, private sector execut�ves,andothercommun�tyleaderstopromoteawarenessofthefus�oncenterfunct�ons.Ensur�ngfeedbacktoent�t�esthatprov�de�nformat�ontofus�oncenters(e.g.,theresultsofthe�nformat�onthathasbeenprov�dedtothefus�oncenter).Ensur�ng,atam�n�mum,contact�nformat�on�scollectedanduptodateform�ss�oncr�t�calent�t�es(e.g.,ut�l�t�es,publ�cworks,andtelecommun�cat�ons).


“Commun�tyCollaborat�on,”www.commun�tycollaborat�on.net

43 J�mFreer,“BanksBandTogether,”TheSouthFloridaBusinessJournal,October2005,www.bizjournals.com/southflorida/stor�es/2005/10/17/da�ly1.html.


Memorandum of Understanding (MOU) and Non-Disclosure Agreement (NDA)MOUIt�srecommendedthatfus�oncentersbegovernedandmanaged�naccordancew�thanMOU.AnMOU,anecessarytool for information sharing, defines the terms, responsibilities, relat�onsh�ps,�ntent�ons,andcomm�tmentsofeachpart�c�pat�ngent�ty;theagreementalsoprov�desanoutl�neofthewho,what,where,when,why,andhowoftheproject.Partnersshouldcomm�ttotheprogrampol�c�esbys�gn�ngtheMOU.Inadd�t�onto MOUs, some initiatives utilize agency, individual, and data shar�nguseragreements.

Issues for ConsiderationWhennegot�at�nganddraft�ngMOUs,cons�der:

Ident�fy�ngandunderstand�ngthelegalandpract�cal�mpl�cat�onsoftheMOU.Defining the roles and responsibilities of the participating agenc�es.Embrac�ngandencourag�ngtrustedrelat�onsh�ps.Includ�nglanguagerequ�r�ngthatallass�gnedpersonnelma�nta�naccesstothe�rownagency’sdata.

Example MOUsAtam�n�mum,�ncludethefollow�ngelements�ntheMOU:

Involvedpart�esM�ss�onGovernanceAuthor�tySecur�tyAss�gnmentofpersonnel(removal/rotat�on)

Fund�ng/costsCivil liability/indemnification issuesPol�c�esandproceduresPr�vacygu�del�nesTermsIntegr�tycontrolD�sputeresolut�onprocessPo�ntsofcontactEffective date/duration/modification/terminationServ�cesDeconfliction procedureSpec�alcond�t�onsProtocolsforcommun�cat�onand�nformat�onexchangeProtocolsforbackgroundchecksonfus�oncenterpart�c�pants

NDAThefus�oncenterdeterm�nesr�skstothepr�vatesectorandanalyzes suspicious activity information. This function requires theshar�ngofsens�t�ve�nformat�onfromthepr�vatesectortothefus�oncenter.Toa�d�nshar�ngth�ssens�t�ve�nformat�on,aNon-D�sclosureAgreementmaybeused.TheNDAprov�despr�vatesectorent�t�esanadd�t�onallayerofsecur�ty,ensur�ngthesecur�tyofpr�vatesectorpropr�etary�nformat�onandtradesecrets.ThedevelopmentofanNDAandaclearunderstand�ngofwhat�tdoesanddoesnotcoverarecr�t�caltopr�vatesectorpart�c�pat�on.

Oneofthefunct�onsoftheNDA�stoprov�deamechan�smforfus�oncenterleadersh�p,part�c�pants,andpersonneltoprotect�nformat�on.NDAsw�llvarybyjur�sd�ct�ons,basedonthetypesofpr�vatesectorent�t�espart�c�pat�ng�nthefus�oncenter.Centersshouldspec�fythetypesof�nformat�oncovered�nanNDA,e.g.,strateg�candr�skassessment�nformat�on.Tact�cal�nformat�on,suchassusp�c�ousact�v�tyreports,shouldnotbe�ncluded�nanNDAbecauseth�s�nformat�onmaybesharedw�thlawenforcementouts�deofthefus�oncenter(e.g.,theJo�ntTerror�smTaskForce(JTTF),F�eldIntell�genceGroup,thestatepol�ce,orotherappropr�ateagenc�es).Informat�onthatthe

Guideline 5Utilize Memorandums of Understanding (MOUs), Non-Disclosure Agreements (NDAs), or other types of agency agreements, as appropriate.


private sector may not want disseminated should be specified in theNDA.Th�s�nformat�onmay�ncludetradesecret�nformat�on(cr�t�caltoabus�nessoperat�on),propr�etary�nformat�on(customerl�sts,throughputrates),andsens�t�vesecur�ty�nformat�on(guardschedules,s�teplans,secur�typlanaccess).Inadd�t�on,fus�oncentersshouldspec�fyhowth�s�nformat�on�sprotectedwhencreat�nganNDA.Subject-matterexpertsmayprov�defus�oncentersw�th�ntell�gencerelatedtothe�rrespect�vesectorsw�thoutd�sclosureoftradesecretsorpropr�etary�nformat�on.But�fth�stypeof�nformat�on�sprov�ded,fus�oncentersshouldbesens�t�vetothestor�ngofthe�nformat�onw�thoutapprovalfromtheprov�d�ngent�ty.

NDAsdonotsupersedepubl�crecordslawsorlegalprocesses.Therefore, fusion centers should be cognizant of local, state, and federalpubl�crecordslawsthatmaysupersedeanNDA,suchasstatesunsh�nelaws,theFreedomofInformat�onAct(FOIA),andfederalandstatepr�vacylawsandrequ�rements.Ifthecenterhasalegalcomm�ttee,th�scomm�tteeshouldbeabletoprov�de�nput�ntothedevelopmentanduseofanNDA.Inadd�t�on,�t�srecommendedthatfus�oncentersandthe�rleadersh�pencourageappropr�atepol�cymakerstoleg�slatetheprotect�onofpr�vatesectordataprov�dedtofus�oncenters.

Issues for ConsiderationWhendevelop�nganNDA,cons�der:

Ident�fy�ngandunderstand�ngthelegalandpract�cal�mpl�cat�onsofanNDA.Defining what information will be treated as confidential.Specifying what entities can receive confidential information.Ind�cat�nghowlongtheNDAw�llbe�neffect.Ident�fy�ngthetypesof�nformat�onthattheNDAw�llcover.Ident�fy�ngrepercuss�onsforv�olat�onoftheNDA.Clearlyspec�fy�nglocal,state,andfederalpubl�crecordslawsw�th�ntheNDA.

Spec�fy�ngwhat�nformat�onshouldbesharedandprotected(e.g.,propr�etaryandtradesecrets).Iftradesecretsorpropr�etary�nformat�on�sprov�ded,anNDAmay�ncludethefollow�ngcaveats:

The�nformat�onbe�ngprov�ded�sownedbythepr�vatesectorpartnerand�sprov�dedforal�m�tedpurposeofdetermining a specific risk associated with the entity.It�sthepr�vatesectorpartner’srespons�b�l�tyto�dent�fythe�nformat�onaspropr�etary.Fus�oncentersshouldtake�ntoaccountlocal,state,andfederalFOIAlaws�nanefforttoensurethat�nformat�onidentified as proprietary may not be disclosed beyond the �mmed�aterec�p�entgroupw�thoutwr�ttenconsentoftheprov�d�ngpr�vatesectorpartner.


28CFRPart23SampleMOUArizona Counter Terrorism Information Center MOUCal�forn�aPubl�cRecordsExempt�onCanadaDepartmentofDefense(DOD)MOUGu�del�nesDHSNon-D�sclosureAgreement,www.fas.org/sgp/othergov/dhs-nda.pdfFlor�daStatute119.071FreedomofInformat�onAct,www.usdoj.gov/04fo�aJo�ntTerror�smTaskForceMOUMassachusettsStatuteMOUSampleTemplateRocklandCountyIntell�genceCenterMOUUpstateNewYorkReg�onalIntell�genceCenterMOU


Database ResourcesJustificationDur�ngthefocusgroupprocess,part�c�pantsrev�ewedanumberof�nformat�onand�ntell�genceshar�ng�n�t�at�ves.Mostofthe�n�t�at�veshaveaccesstosomelocal,state,andfederaldatabases, as well as other organizations or data sets. Centers maywanttoevaluatethetypesofdatabasesthatpart�c�pat�ngagencies have available. Gaps should be identified and researched.Leverag�ngthedatabasesandsystemsava�lablev�aparticipating entities will help maximize information sharing. This �sanopportun�tytoaccessprev�ouslyunava�lable�nformat�on.It�srecommendedthatownersh�pandcontroloflawenforcement�nformat�onsharedthroughthecenterrema�nw�ththeor�g�nat�ngagency.Dataownersshouldberespons�bleforthequal�tyofdatashared.Accesstodatacanbecontrolled�navar�etyof

ways,�nclud�ngfus�oncenterleadersh�pcontroll�ngwhohasaccessordataor�g�natorscontroll�ngaccesslevels.Formore�nformat�onaboutthesecur�tyofdata,seeGu�del�ne9(Secur�ty).Anotheropt�on�sforthecentertohousethe�r�nformat�on.Ifacenterchoosesth�sopt�on,�t�s�mportantforthenecessarypol�c�esandprocedurestobe�nplacetogovernuseandaccess.

Fus�oncentersshouldconsultw�thpubl�csafetyandpr�vatesectorpersonneltodeterm�ne�fany�nformat�onshar�ngdatabasesmaybeava�lablew�th�nthe�rrespect�vejur�sd�ct�ons.Spec�alcons�derat�onshouldbeg�ventothedevelopmentofpol�c�esandproceduresthatensurepubl�csafetyandpr�vatesector�nformat�on�snotcomb�nedw�thfederaldatathatcontains personally identifiable information, and when a criminal predicate, threat, or public safety need is identified, access to this information will be virtual through networking and utilizing a searchfunct�on.Add�t�onally,fus�oncenterpart�c�pantsshouldensurecompl�ancew�thalllocal,state,andfederalpr�vacyandc�v�ll�bert�eslawsandstatutes.

Issues for ConsiderationWhenaccess�ngdatabases,cons�derobta�n�ngaccesstoavar�etyofdatabasesandsystems,suchas:

Dr�ver’sl�censeMotorveh�clereg�strat�onLocat�on�nformat�on(411,addresses,andphonenumbers)LawenforcementdatabasesNat�onalCr�meInformat�onCenter(NCIC),Nlets–TheInternat�onalJust�ceandPubl�cSafetyInformat�onShar�ngNetwork,andtheTerror�stScreen�ngCenter(TSC)Cr�m�naljust�ceagenc�esPubl�candpr�vatesources(Secur�tyIndustrydatabases,Ident�tyTheftdatabases,Gam�ngIndustrydatabases)Reg�onalInformat�onShar�ngSystems(RISS)/LawEnforcementOnl�ne(LEO),U.S.DepartmentofHomelandSecur�ty’s(DHS)HomelandSecur�tyInformat�onNetwork(HSIN),�nclud�ngtheUn�tedStatesPr�vate-Publ�cPartnersh�p(USP3)—formerlyHSIN-CI.(Note:RISS,LEO,andDHS’sHSINarecurrentlycollaborat�ngonanetworkcapab�l�ty.)

Guideline 6Leverage the databases, systems, and networks available via participating entities to maximize information sharing.


Organizational and association resources (InfraGard, The InfrastructureSecur�tyPartnersh�p)44

Correct�onsSexoffenderreg�str�esV�olentCr�m�nalApprehens�onProgram(VICAP)Health-andPubl�cHealth-RelatedDatabases(Publ�cHealthInformat�onNetwork,HealthAlertNetwork)

Also�mportantaresuch�ssuesas:

ControlsandsafeguardsfordataaccesslevelsTechnical specification of databases (structured/unstructured data)Identification and leveraging of partner resourcesOwnersh�pofthedata�nthefus�oncenterDataqual�tyanddatarel�ab�l�ty

System/Network ResourcesThefollow�ngareava�lableresourcesforlawenforcementent�t�es.Th�sl�st�snotmeanttobeall�nclus�ve.Add�t�onalresourcesandWebs�tesmayex�sttoass�stfus�oncenters.

ElPasoIntelligenceCenter(EPIC)—EPICestabl�shedaSouthwestBorderIntell�genceServ�ceCenterw�thaconcentrat�onondrugmovementand�mm�grat�onv�olat�ons.MembersofEPIChaveaccesstoaw�derangeof�ntell�gence,�nclud�ng�nformat�onfromtheU.S.DrugEnforcementAdm�n�strat�onandU.S.Imm�grat�onandCustomsEnforcement(ICE).www.usdoj.gov/dea/programs/ep�c.htm

FederalBureauofInvestigation’s(FBI)LEOProgram—LEO�sanat�onal,�nteract�vecomputercommun�cat�onssystemand�nformat�onserv�ce,an�ntranetexclus�velyforthelawenforcementcommun�ty.www.fb�.gov/hq/cj�sd/leo.htm

FBI’sNationalDateExchange(N-DEx)—N-DExw�llprov�dethefirst implementation of structured search and index capabilities fortheU.S.DepartmentofJust�ce’s(DOJ)LawEnforcementInformat�onShar�ngProgram.Allk�ndsofdata(e.g.,structured,full-text,mult�med�a)w�llbeava�lablethroughN-DEx,althoughsearch�ng,match�ng,andl�nk�ngw�llonlybeposs�bleonwell-defined entities (people, vehicles, locations, weapons, phone numbers,etc.),notarb�trarytext(full-textdata).The�n�t�alfocus�sonstructured�nc�dentdatabutw�llbeexpandedtootherstructureddata(extractedent�tydatafromfull-textdocuments).N-DEx’sfocus�sonlargeagenc�esandaggregateddatasources,suchasRICs,butw�llexpandtoanylawenforcementagency.

44 ThegoalofInfraGard�stopromoteongo�ngd�alogueandt�melycommun�cat�onbetweenmembersandtheFBIconcern�ngvar�ouscounterterror�sm,counter�ntell�gence,andcr�m�nalmatters.Th�s�nformat�onshar�ng�saccompl�shedby84InfraGardchaptersthatarelinked with the 56 FBI field office territories and their FBI Special Agent Coord�nators.Anycr�t�cal�nfrastructureownersandoperatorscanjo�nInfraGardandpart�c�pate�nlocalchaptertra�n�ngandeducat�oninitiatives; receive sensitive, unclassified information updates; and part�c�pate�nmeet�ngs.AllInfraGardappl�cantsmustsubm�ttoarecordscheck,�nclud�ngacr�m�nalh�storycheck,pr�ortobecom�ngamember,�nordertoensuretheprogram�scomposedofwell-�ntent�oned,lawab�d�ngcitizens. For more information, visit www.�nfragard.net.

FBI’sRegionalDataExchange(R-DEx)—R-DExprov�desan�nterfacetoReg�onalIntell�genceCenters(RICs)toenablesearch�ngofunstructureddocumentsandforretr�ev�ngmatch�ngdocuments.R-DExservestwoma�nfunct�ons:prov�d�ngRICsw�thaccesstoDOJ’sdataandenabl�ngaRIC’susertoperformfull-textsearchesoverDOJunstructureddocumentsforthereg�on,�nadd�t�ontothestateandlocaldocumentsaccessed�nternally.

FinancialCrimesEnforcementNetwork(FinCEN)—F�nCENsupportslawenforcement�nvest�gat�veeffortsandfosters�nteragencyandglobalcooperat�onaga�nstdomest�candinternational financial crimes. Its objective is to provide United Statespol�cymakersw�thstrateg�canalys�sofdomest�candworldw�demoney-launder�ngdevelopments,trends,andpatterns.FinCEN controls over 150 million reports filed under the Bank SecrecyActandothers�m�larlaws.www.fincen.gov

High Intensity Drug Trafficking Areas (HIDTA)—Th�sprogramprov�desfederalfundstoproblemareastohelpel�m�nateorreduce drug trafficking and its harmful consequences. Analysts atHIDTAcentershaveaccesstoavar�etyofdatabasesandsystemsthatareava�labletolawenforcement.www.wh�tehousedrugpol�cy.gov/h�dta/�ndex.html

HomelandSecurityInformationNetwork(HSIN)—HSINprov�desasecureInternet-basedtechnologythatallowsreal-time information sharing at the sensitive but unclassified level. It�sthecollaborat�vesystemusedbytheDHSOperat�onsCentertocollectandd�ssem�nate�nformat�onbetweenDHSandlocal,state,tr�bal,andfederalagenc�es�nvolved�ncombat�ngterror�sm.HSINalso�ncludespubl�csafetyandpr�vatesectorconnect�v�ty(USP3),homelandsecur�ty,andother�nformat�on.Accesstosecret�nformat�onw�llbeava�lable�nthenearfutureonHSIN-Secret.www.dhs.gov/dhspubl�c/d�splay?content=3350

InternationalAssociationofCrimeAnalysts(IACA)—IACAhelpscr�meanalystsaroundtheworld�mprovethe�rsk�llsandmakevaluablecontacts,helpslawenforcementagenc�esmaximize use of crime analysis, and advocates for standards of performanceandtechn�quew�th�ntheprofess�ons.www.�aca.net

InternationalAssociationofLawEnforcementIntelligenceAnalysts(IALEIA)—IALEIA’s mission is to professionalize analys�s�nlawenforcement,them�l�tary,andpr�vate�ndustry.IALEIAhaspubl�shedanumberofbookletsandholdsmajorconferences,localorreg�onalchaptermeet�ngs,andtra�n�ngsess�ons.www.�ale�a.org

InternationalCriminalPoliceOrganization(INTERPOL)—INTERPOL is a worldwide law enforcement organization, establ�shedformutualass�stance�ntheprevent�on,detect�on,anddeterrenceof�nternat�onalcr�mes.Ithouses�nternat�onalpol�cedatabases,prov�dessecure�nternat�onalcommun�cat�onsbetweenmembercountr�esfortheexchangeofrout�necr�m�nal�nvest�gat�ve�nformat�on,and�san�nformat�onclear�nghouseon�nternat�onalcr�m�nal/fug�t�vesandstolenpropert�es.www.usdoj.gov/usncb

LawEnforcementIntelligenceUnit(LEIU)—ThepurposeofLEIU is to record and exchange confidential criminal information on organized crime not previously available through regular pol�cecommun�cat�onchannels.Membersh�p�nLEIU�sopen


tolocalorstatelawenforcementagenc�eshav�ngacr�m�nal�ntell�gencefunct�on.Theappl�cantmustbesponsoredbyacurrentmember.LEIUmaybereachedattheStateTerror�smThreatAssessmentCenter,BureauofInvest�gat�on,Intell�genceOperations Program, Central Coordinating Agency, Post Office Box163029,Sacramento,Cal�forn�a95816-3029.www.le�u-homepage.org/�ndex.php

NationalCrimeInformationCenter(NCIC)—NCIC�sanat�onw�de�nformat�onsystemthatl�nkstogetherlocal,state,tr�bal,andfederalcr�m�naljust�ceagenc�es.NCIC’scapab�l�t�esinclude an enhanced name search, fingerprint searches, �nformat�ononpersonsonprobat�onorparole,aconv�ctedsexoffenderreg�stry,andareg�stryof�nd�v�duals�ncarcerated�nthefederalpr�sonsystem.www.fb�.gov/hq/cj�sd/nc�c.htm

NationalDrugIntelligenceCenter(NDIC)—TheNDICsupportsnat�onalpol�cyandlawenforcementdec�s�onsw�tht�melystrateg�cdomest�cdrug�ntell�genceassessments,focus�ngonthe production, trafficking, and consumption trends and patterns ofall�ll�c�tdrugs�ns�deUn�tedStatesnat�onalbordersandterr�tor�es.www.usdoj.gov/nd�c

NationalWhiteCollarCrimeCenter(NW3C)—NW3Cprov�desanat�onalsupportnetworkforlocalandstatelaw

enforcementagenc�es�nvolved�ntheprevent�on,�nvest�gat�on,andprosecut�onofeconom�candh�gh-techcr�me.NW3C�samember-affiliated organization comprised of law enforcement agenc�es,stateregulatorybod�es,andlocalandstateprosecution offices. Support services are offered in five main categor�es:econom�candcomputercr�metra�n�ng,�ntell�genceandanalyt�calserv�ces,casefund�ngfordes�gnatedcases,research,andfraud-compl�antreferralandanalys�sthrough�tsNat�onalFraudCompla�ntManagementCenter/InternetFraudCompla�ntCenter.www.nw3c.organdwww.tra�n�ng.nw3c.org

Nlets—TheInternat�onalJust�ceandPubl�cSafetyInformat�onShar�ngNetwork—Nlets�san�nterstatelawenforcementnetworkfortheexchangeoflawenforcementandrelatedjust�ce�nformat�on.www.nlets.org

RISSAutomatedTrustedInformationExchange(ATIX)—RISSATIX™prov�desusersw�thsecure�nteragencycommun�cat�onsand�nformat�onshar�ngresourcesforexchang�ngpubl�csafetyandlawenforcement�nformat�on.www.r�ss�nfo.com/r�ssat�x.htm

RISSNET™—RISSNETprov�desthes�xRISScentersw�thasecurecr�m�nal�ntell�gencenetworkforcommun�cat�onsand�nformat�onshar�ngbylocal,state,tr�bal,andfederallawenforcementagenc�es.www.r�ss�nfo.com



InterconnectivityJustificationLawenforcementent�t�esmustcommun�cate.Theult�mategoal�stoel�m�natebarr�erstocommun�cat�onsand�ntell�gencedevelopmentandexchange.Commun�cat�onbarr�erscome�nanumberofforms—e.g.,�ncompat�bleord�sparatecomputersystems,lackoftrust,lackof�nteroperab�l�ty,lackofacommonterm�nology,andlackoffund�ng.Centersshouldestabl�shformalprotocols(pol�c�esandprocedures)andstandardstoenhancecommunications, as well as create effective and efficient vehicles forexchang�ng�nformat�on.Centerpersonnelandleadersh�pshouldcommun�catefrequentlyandberespons�vetotheneeds,concerns,and�deasofboth�nternalandexternalpartners.The�nformat�onconta�ned�nth�sgu�del�neperta�nstoverbal,wr�tten,andelectron�ccommun�cat�ons.

It�srecommendedthatfus�oncentersleverageex�st�ngsystemsandthosecurrentlyunderdevelopmentandallowforfutureconnect�v�tytootherstate,local,tr�bal,andfederalsystems.Furthermore,centersshouldbeawareofandeducatedonGlobalJXDM.AnynewdatabasedevelopmentshouldbeGlobalJXDM-compl�antandmeetex�st�ngstandards.It�s�mportanttonotethat

DOJandtheU.S.DepartmentofHomelandSecur�ty(DHS)are�ntegrat�ngtheuseofGlobalJXDM�ntograntrec�p�entcr�ter�a.

GlobalJXDM�sacomprehens�veproductthat�ncludesadatamodel,adatad�ct�onary,andanXMLschemathat�ssponsoredbyDOJ.Itsdevelopment�ssupportedbytheGlobalXMLStructureTaskForce(GXSTF),wh�chworkscloselyw�thresearchersattheGeorg�aTechResearchInst�tute(GTRI).The Global JXDM is an XML standard designed specifically forcr�m�naljust�ce�nformat�onexchanges,prov�d�nglawenforcement,publ�csafetyagenc�es,prosecutors,publ�cdefenders,andthejud�c�albranchw�thatooltoeffect�velysharedataand�nformat�on�nat�melymanner.TheGlobalJXDMremovestheburdenfromagenc�esto�ndependentlycreateexchangestandards,andbecauseof�tsextens�b�l�ty,there�smore flexibility to deal with unique agency requirements and changes.Throughtheuseofacommonvocabularythat�sunderstoodsystemtosystem,GlobalJXDMenablesaccessfrommult�plesourcesandreuse�nmult�pleappl�cat�ons.

Issues for ConsiderationWhenestabl�sh�ngconnect�v�tyandcommun�cat�ons,cons�der:Str�v�ngforcompat�b�l�tynotcommonal�ty.Includ�ngbothtechn�calandmanager�alport�onsofconnect�v�ty.Us�ngWeb-enabledtechnologywhenava�lable.Us�ngad�str�butedstructurewhenappropr�ate.Develop�ngmechan�smstocommun�cate�nternallyw�thpart�c�pat�ngagenc�es.Develop�ngapol�cytoensurepropercommun�cat�onw�thleadersandpol�cymakers,thepubl�candpr�vatesector,media, and citizens.Ensur�ngsecureandredundantcommun�cat�ons.Establishing an electronic notification capability for fusion centerpart�c�pants.Ma�nta�n�ngastand-alonesecur�tysystem(mob�le).Implement�ngacommun�cat�onsplan.

Guideline 7Create an environment in which participants seamlessly communicate by leveraging existing systems and those currently under development, and allow for future connectivity to other local, state, tribal, and federal systems. Use the U.S. Department of Justice’s (DOJ) Global Justice Extensible Markup Language (XML) Data Model (Global JXDM) and the National Information Exchange Model (NIEM) standards for future database and network development, and consider utilizing the Justice Information Exchange Model (JIEM) for enterprise development.


Ident�fy�ngtherequ�rementsforpr�vatesectorandpubl�csafetysystemsandnetworks.Adher�ngtoneed-to-know/r�ght-to-knowst�pulat�ons.Develop�ngoutreachmater�altohelp�ncreaseawarenessamong policymakers, media, and citizens.Conduct�ngtra�n�ngonpropercommun�cat�onandcenterpol�cy.Meet�ngregularlyw�thpersonnelandoffer�ng�ntell�genceexchangesess�ons.Remember�ngthatcommun�cat�ongoesbeyondjust�n-housecommun�cat�on.Incorporat�ngtheprotocolsforcommun�cat�onand�nformat�onexchange�ntheMOU(Gu�del�ne5).

Justice Information Exchange ModelIt is important to document and analyze information exchange attheplann�ngstageofaprojectandtocreateabluepr�ntattheenterpr�selevel(amongagenc�es,levelsofgovernment,andavar�etyofd�sc�pl�nes)forelectron�callyshar�ngdatathatcapitalizes on efficiency, accuracy, and timeliness. This is regardlessofwhether�nterfacesbetweensystemsforshar�ng�ntell�gencecons�stofs�mplequer�esandresponsesoraremoresoph�st�catedtransact�onalprocessesthatbu�ldcentral�ndexentr�esorpopulatedatawarehouses.Th�sdes�gnshouldbecreated by business experts from the participating organizations, underthed�rect�onofpol�cyleadersandw�ththeass�stanceoftechnolog�sts.Itshouldbebasedonad�sc�pl�nedexam�nat�onofcurrentbus�nesspract�ces,ex�st�ngtechnology,andpaperandelectron�cexchangeof�ntell�gencethatalready�soccurr�ng.

TheJust�ceInformat�onExchangeModel(JIEM)canass�stfus�oncenters�nperform�ngthese�mportanttasks.CreatedbySEARCH,TheNat�onalConsort�umforJust�ceInformat�onand Statistics, and supported by the Office of Justice Programs’ (OJP)BureauofJust�ceAss�stance(BJA),JIEMdocumentstheprocesses,tr�gger�ngevents,andcond�t�onsthatgovern�nformat�onexchangedattheenterpr�selevel.Itmodelsthedata that flows or should flow between organizations. JIEM was developedtocollectrequ�rementsfrompract�t�onersforjust�ceinformation sharing initiatives, specifically to assist justice system leaders in analyzing and documenting existing information exchangeattheenterpr�selevel.JIEMwasalsodevelopedtoass�st�ndes�gn�ngnewelectron�cexchangeprocessesasapartofan�ntegratedjust�ce�n�t�at�veand�nadopt�ngand�mplement�ngnat�onalbus�ness,data,andtechnologymodelstosavet�me,effort,andmoney.It�saconceptualframeworkthatpresents the flow of information between agencies, defines the key events that trigger the need to share information, identifies theagenc�es�nvolved�ntheexchange,anddescr�besthenatureofthe�nformat�onexchange,�rrespect�veofwhetherone�sanalyzing a justice or nonjustice system exchange. JIEM helps just�ceandpubl�csafetypract�t�onerstoart�culaterequ�rementsthatcanbecommun�catedtotechnolog�stswhodevelopsystemsand�nterfaces.45

JIEM�sl�nkedw�thDOJ’sGlobalJXDM,allow�ngeasy�mport�ngofmodelcomponentstodes�gnelectron�cdocuments.Soon�tw�llbel�nkedw�ththeab�l�tyto�mportandexportXMLschema

45 Add�t�onal�nformat�ononJIEMcanbefoundatwww.search.org/programs/�nfo/j�em.asp.

andotherInformat�onExchangePackageDocumentat�on(IEPD)art�factsthatareessent�alto�mplement�ngtheGlobalJXDM.Th�sw�lleventuallyenablejust�ceagenc�estoseamlesslygenerate(and,�fneedbe,regenerate)GlobalJXDM-compl�ant�nformat�onexchangesfromthebus�nessrulesencapsulated�nJIEM,ensur�ngthattheycanberap�dlyadaptedtotheneedsofan�ncreas�nglydynam�cenv�ronment.JIEM�salsobe�ngenhancedtosupporttheexchangeof�nformat�on;notonlyw�th�ndoma�ns(as�nthejust�cedoma�ntoday)butbetweend�fferentdoma�ns,suchasjust�ce,emergencymanagement,transportat�on,and�ntell�gence;�nsupportofemerg�ngorganizations, such as fusion centers.46

National Information Exchange ModelThe U.S. Department of Justice’s (DOJ) Office Justice Programs’ (OJP)BureauofJust�ceAss�stance(BJA)�scollaborat�ngw�thDHS to utilize the Global JXDM as the base for the deployment oftheNat�onalInformat�onExchangeModel(NIEM).NIEMw�llprov�dethefoundat�onandbu�ld�ngblocksfornat�onal-level�nteroperable�nformat�onshar�nganddataexchangethatw�ll�ntegratethepubl�csafetyandpr�vatesectorent�t�estothealreadyestabl�shedlawenforcement�nformat�onexchange.Thetentat�vedateforNIEMtobeoperat�onal�sOctober2006.47

Inadd�t�ontoNIEMandJIEM,otheropt�onsfor�nterconnect�v�tyinclude developing and utilizing a secure Internet site to post alerts,calendarsthatmay�ncludetra�n�ng�nformat�onandsignificant dates, and a chat interface. Another option is a Webportaltoconnectthefus�oncenterw�thpr�vatesectorandpubl�csafetypartnersthatw�llallowforas�ngles�gn-onandcanprov�des�tuat�onalawarenessreports,threats,andwarn�ngs.Italso has the capability for e-mail notifications. Interconnectivity also�ncludesface-to-facecommun�cat�on,�nclud�ngregularmeet�ngsw�thother�ntell�gencecenterstoshare�nformat�onand intelligence. Interconnectivity aids in institutionalizing the relat�onsh�psbetweenthefus�oncenterandthepubl�csafetyandpr�vatesectorpartners.However,fus�oncentersandthe�rpartnersshouldbeawareofpr�vacy�ssueswhendevelop�ng�nformat�onshar�ngnetworks,systems,orWebs�tes.

Distributed Versus Centralized SystemsCurrently, both distributed and centralized systems are be�ngusedsuccessfullyforlawenforcement�nformat�onandintelligence sharing. There are benefits and challenges to both models.

Ad�str�butedmodelallowspart�c�pat�ngent�t�estocontrolthe�rdata.Data�snotcomm�ngledorhoused�nadatawarehouse.Agenc�esarerespons�bleforthequal�tyofthedataandtheaccess�b�l�tyofthe�r�nformat�on.Thed�str�butedstructurecanstreamline policy development and minimize privacy concerns, while providing the same functionality as a centralized model.

46 TheSEARCHreport,InformationExchangeAnalysisandDesign,canbefound�nAppend�xEofth�sreport.47 Formore�nformat�ononNIEM,v�s�twww.n�em.gov.


The distributed model is also reliable and can maximize resources.D�str�butedsystemsarescalableandofferaggregatecomputerpower.However,secur�ty�ssues,resourced�str�but�on,demand,andcomput�ngpowercanl�m�tthed�str�butedmodel.48

A centralized system places all information in one location. Collect�onof�nformat�onandrefresh�ngofdatacanbecomplicated with a centralized structure. However, often the functionality of the centralized system is greater and allows for �ncreasedspeed.

Awh�tepaperpreparedbytheIntegratedJust�ceInformat�onSystems(IJIS)Inst�tuteprov�desacomparat�veanalys�softhedistributed and centralized system based on five components: cost,governanceanddataownersh�p,performanceandfunct�ons,scalab�l�ty,andsecur�tyandpr�vacy.Th�sdocument�s�ncludedontheresourceCD.Centersshouldevaluatebothstructures to determine the best fit. As described above, it is the recommendat�onoftheFusionCenterGuidelinesthatsystemscan be distributed or centralized; however, federal data that contains personally identifiable information should be separate fromothertypesof�nformat�onthefus�oncenterrece�ves,�nclud�ngpubl�csafetyandpr�vatesector�nformat�on.

Service-Oriented ArchitectureInformat�onshar�ng�salong-stand�ngpract�ceamongjust�ceagenc�es,part�cularlyw�th�nthelawenforcementcommun�ty.Assoc�etybecomesmoremob�le,the�mportanceofshar�ngdatato�mprovepol�ceeffect�venessgrowsexponent�ally.TheWebandthetechnolog�esthatsupport�thaveenabled�nformat�onshar�ngto go beyond exchanges among specific partners to embrace the wholeofthejust�cecommun�ty.Th�s�ncludeslawenforcement,prosecutors,defensecounsel,courts,probat�on,andcorrect�ons,andahostofcorollaryd�sc�pl�nes,suchashomelandsecur�ty,fire, emergency services, health, education, transportation, andmotorveh�clel�cens�ng.Serv�ce-or�entedarch�tecture(SOA)�ncorporatess�xfundamentalpr�nc�plesfortheshar�ngof�nformat�on�nthecr�m�naljust�cecommun�ty:

The architecture must recognize innumerable independent agenc�esandfund�ngbod�esfromthepr�vatesectorthroughlocal,state,tr�bal,andfederalgovernments.Informat�onshar�ngmustoccuracrossagenc�esthatrepresentd�vergentd�sc�pl�nes,branchesofgovernment,andoperat�ngassumpt�ons.The infrastructure must be able to accommodate an infinite rangeofscales,fromsmalloperat�onsw�thfewpart�c�pants�naruralcountytonat�onalprocessesthatreachacrosslocal,state,tr�bal,federal,andeven�nternat�onalboundar�es.Informat�onshar�ngmustoccuramongdatasourcesthatd�fferw�dely�nsoftware,hardware,structure,anddes�gn.Public sector technology investment must reflect and �ncorporatethelessonsanddevelopmentsofthepr�vatesector.The�nfrastructuredes�gnmustbedynam�c,capableofevolv�ngasthe�nformat�onshar�ngrequ�rementschangeandthetechnology�stransformed.

Th�sconceptofdes�gnallowstheor�g�naldataownerstocontrol

48 TexasA&MUn�vers�tyComputerSc�enceDepartment.Introduct�ontoD�str�butedSystems,2001.

the�rowndata,both�ntermsofwho�sallowedtoaccess�tand�nensur�ngthe�ntegr�tyofthedata.Itallowsagenc�estoreta�nthe�nvestmenttheyhavemade�nthe�rex�st�ngsystemsandatthesamet�mega�naccesstovaluable�nformat�onconta�ned�notheragencysystems.ItusesthetechnologyoftheInternet,wh�ch�suser-fr�endlyandread�lyunderstoodbymost.

In2004,DOJ’sGlobalInfrastructure/StandardsWork�ngGroup(GISWG)publ�shedadocumentent�tledAFrameworkforJusticeInformationSharing:Service-OrientedArchitecture(SOA). Based on the report, Global recognizes that SOA is therecommendedframeworkfordevelopmentofajust�ce�nformat�onshar�ngsystem.Thereport�nd�catesthatasystemshouldbedes�gnedanddevelopedaroundthebas�ccomponentsoftheoperat�onalproceduresorbus�nesspract�cesofanagency.Thesecomponentsarethencomb�ned�ntoalarger,looselyrelatedstructurethat,�nturn,canbecomb�ned�ntoanevenlargerent�ty.TheSOAdes�gnmustbeava�labletoallagenc�esandsupporttheevolut�onofchangeandnewtechnology,w�thsupportforstart-up,ma�ntenance,andfutureupgradestothe�nformat�onshar�ngsystemsthatarebasedontheSOAframework.Acompletecopyofthereport�sconta�nedontheaccompany�ngresourceCD.

Organization for the Advancement of Structured Information Sharing Systems (OASIS)—Ratified Common Alerting Protocol (CAP)It�srecommendedthat,whereposs�ble,fus�oncentersusetheOASIS-ratified CAP to enable the exchange of emergency alert andpubl�cwarn�ng�nformat�onoverdatanetworksandcomputer-controlledwarn�ngsystems.Us�ngCAPalsoaddsanelementofredundancytothesystemsandnetworks.Byl�m�t�ngtransport-specific nomenclature, CAP remains fully compatible with ex�st�ngpubl�cwarn�ngsystems,�nclud�ngthosedes�gnedformult�l�ngualandspec�al-needspopulat�ons,aswellasw�thXMLappl�cat�ons,suchasWebserv�ces.CAPdataelementshavebeen�ncorporated�nDOJ’sGlobalJXDM.Otheragenc�es,suchasDHS’sFederalEmergencyManagementAgency(FEMA),haveembracedtheCAPandare�ntheprocessof�ntegrat�ng�t�ntoallalertandwarn�ngsystems.


ACriticalLookatCentralizedandDistributedStrategiesforLarge-ScaleJusticeInformationSharingApplications(awh�tepaperpreparedbytheIJISInst�tute)AFrameworkforJusticeInformationSharing:Service-OrientedArchitecture(SOA),http://�t.ojp.gov/documents/200409_Global_Infrastructure_Report.pdfGlobalJust�ceXMLDataModel(GlobalJXDM),www.�t.ojp.gov/gjxdmJust�ceInformat�onExchangeModel,www.search.org/programs/�nfo/j�em.aspModelIntell�genceDatabasePol�cy



Privacy and Civil LibertiesJustificationTheNationalCriminalIntelligenceSharingPlan(NCISP)stressestheneedtoensurethatconst�tut�onalr�ghts,c�v�ll�bert�es,c�v�lr�ghts,andpr�vacyareprotectedthroughoutthe�ntell�genceprocess.Inordertobalancelawenforcement’sab�l�tytoshareinformation with the rights of citizens, appropriate privacy and c�v�ll�bert�espol�c�esmustbe�nplace.

ProcessPr�vacyandc�v�ll�bert�esprotect�onshouldbecons�dered�ntheplann�ngstagesofafus�oncenter.Assystemsaredes�gned,analys�sshouldbemadeandprotect�onsshouldbedevelopedfor personally identifiable information to ensure its protection.

DOJ’sGlobalJust�ceInformat�onShar�ngIn�t�at�ve(Global)hasdevelopedthePrivacyPolicyDevelopmentGuideandthePrivacyandCivilRightsPolicyTemplateforJusticeInformationSystemstoa�djust�cepract�t�onersw�thdevelop�ngorrev�s�nganagency’spr�vacypol�cy.Furthermore,thegu�deass�stsagenc�es�nart�culat�ngpr�vacyobl�gat�ons�namannerthatprotectsthejust�ceagency,the�nd�v�dual,andthepubl�candmakes�teas�ertodowhat�snecessary—sharecr�t�caljust�ce�nformat�on.Thesedocumentsareconta�nedasattachmentstothegu�del�nes.

The Global documents utilize, and any fusion center should cons�der,theFa�rInformat�onPract�ceswh�charetheacceptedbasel�neforpr�vacyprotect�onworldw�de.Thefollow�ng�sasummaryoftheFa�rInformat�onPract�ces:

Collectionlimitationprinciple.Thereshouldbel�m�tstothecollect�onofpersonaldata,andanydatashouldbeobta�nedbylawfulandfa�rmeansand,whereappropr�ate,w�ththeknowledgeorconsentofthedatasubject.Dataqualityprinciple.Personaldatashouldberelevanttothepurposesforwh�chtheyaretobeusedand,totheextentnecessaryforthosepurposes,shouldbeaccurate,complete,anduptodate.Purpose specification principle.Thepurposesforwh�ch

1.

2.

3.

personal data is collected should be specified no later than atthet�meofdatacollect�on.Itssubsequentuseshouldbelimited to the fulfillment of those purposes or such others as are not incompatible with those purposes and as are specified oneachoccas�onofchangeofpurpose.Uselimitationprinciple.Personaldatashouldnotbed�sclosed,madeava�lable,orotherw�seusedforpurposesother than those specified in accordance with Principle 3 except(a)w�ththeconsentofthedatasubjector(b)bytheauthor�tyoflaw.Securitysafeguardsprinciple.Personaldatashouldbeprotectedbyreasonablesecur�tysafeguardsaga�nstlossorunauthorized access, destruction, misuse, modification, or d�sclosure.Opennessprinciple.Thereshouldbeageneralpol�cyofopennessaboutdevelopments,pract�ces,andpol�c�esw�threspecttopersonaldata.Meansshouldberead�lyava�lableforestabl�sh�ngtheex�stenceandnatureofpersonaldata,andthema�npurposesofthe�ruse,aswellasthe�dent�tyandusualres�denceofthedatacontroller.Individualparticipationprinciple.An�nd�v�dualshouldhavethe right to (a) obtain confirmation of whether or not the data controllerhasdatarelat�ngtoh�m;(b)havethedatarelatedtoh�mw�th�nareasonablet�me,cost,andmannerand�naformthat�sread�ly�ntell�g�bletoh�m;(c)beg�venanexplanat�on�farequestmadeunder(a)and(b)�sden�edandbeabletochallengesuchden�al;and(d)challengedatarelat�ngtoh�mand,�fthechallenge�ssuccessful,tohavethedataerased,rectified, completed, or amended.Accountabilityprinciple.Adatacontrollershouldbeaccountableforcomply�ngw�thmeasuresthatg�veeffecttothepr�nc�plesstatedabove.TheNCISPrecommendsthatpr�vacypol�c�esshould:

El�m�nateunnecessaryd�scret�on�ndec�s�onmak�ng,gu�dethenecessaryd�scret�on,andcont�nuallyaud�ttheprocesstoensureconformancew�ththepol�cy.Ensureleg�t�macy—whenanagency�sdevelop�nganewpol�cyorrev�ew�ngex�st�ngones,�nterestedpart�esandcompet�ngv�ewpo�ntsshouldberepresented.Clearly define the parameters of the policy.

4.

5.

6.

7.

8.

Guideline 8Develop, publish, and adhere to a privacy and civil liberties policy.


Acknowledgeandaddress�mportant�ssuesthatcurrentlyarenot�ncluded�nsomeex�st�ngcr�m�nal�ntell�gencepol�c�es.Ident�fythedec�s�onpo�ntsw�th�nthe�ntell�genceprocessandprov�deappropr�ategu�danceandstructureforeach.

Issues for ConsiderationIssuestocons�derwhendraft�ngapr�vacypol�cy�nclude:

Add�ng�ntroductorylanguagethatclearlystatesthepr�vacypract�cesofthecenter.Descr�b�ngthe�nformat�oncollectedandhow�nformat�on�sstored.Establ�sh�ngacommonlex�conoftermsfordeal�ngw�throle-basedaccess.Defining and publishing how the information will be used.Draft�ngaclear,prom�nent,andunderstandablepol�cy.Avo�dcommun�cat�ng�ncompl�catedortechn�calways.D�splay�ngthepr�vacypol�cyforbothcenterpersonnelandcustomers.Ensur�ngthatallotherpol�c�esand�nternalcontrolsarecons�stentw�ththepr�vacypol�cy.Establ�sh�ngabus�nesspract�ceofnot�fy�nggovernmentagenc�esofsuspected�naccuratedata.Adher�ngtoappl�cablestateandfederalconst�tut�onalandstatutoryc�v�lr�ghtsprov�s�ons.Partner�ngw�thtra�n�ngcentersonpr�vacyprotect�onrequ�rementsandconduct�ngper�od�cpr�vacysecur�tyaud�ts.Consult�ngw�thapr�vacycomm�ttee(seeGu�del�ne3)toensure that citizens’ privacy and civil rights are protected.When utilizing commercially available databases, ensuring the usage is for official business and the information obtained �snotcomm�ngledw�thpr�vatesectordata.Topreventpubl�crecordsd�sclosure,r�skandvulnerab�l�tyassessmentsshouldnotbestoredw�thpubl�clyava�labledata.Determining if there are security breach notification laws w�th�nthejur�sd�ct�onandfollow�ngthoselaws,�fappl�cable.

Adhering to a Privacy PolicyThereareanumberofmechan�smsthatcenterscandeveloporestabl�shthatw�llass�stthem�nadher�ngtothe�rpr�vacypol�cy.Someofthese�nclude:49

Establ�shapr�vacyovers�ghtcomm�ttee(seeGu�del�ne3)orappoint a privacy officer.Developorupdatepr�vacytra�n�ngandor�entat�onforallemployees.

49 BethHjort,“AHIPAAPr�vacyCheckl�st(AHIMAPract�ceBr�ef),”JournalofAHIMA72,Number6,64A-C,2001.

Developamechan�smforongo�ng�nformat�onpr�vacyawareness.Establ�shaprocessfortrack�ngandhandl�ngpr�vacycompla�ntsorconcerns.Developacons�stentsanct�onpol�cyforfa�luretocomplyw�ththe privacy policy for all individuals in the organization.Recognize the overlap in privacy activities and security activities, and coordinate both within the organization.Ensureallcenterpersonnelareadequatelytra�ned�nus�ngthepr�vacypol�cy.Seeklegalcounsel.


Aud�tCheckl�st(LEIU),www.�t.ojp.gov/documents/LEIU_aud�t_checkl�st.pdfGlobal’sPrivacyandInformationQualityPolicyDevelopmentfortheJusticeDecisionMaker,http://�t.ojp.gov/documents/200411_global_pr�vacy_document.pdfNat�onalCr�m�nalJust�ceAssoc�at�on—JusticeInformationPrivacyGuideline,www.ncja.org/pdf/pr�vacygu�del�ne.pdfPrivacyandCivilRightsPolicyTemplatesforJusticeInformationSystemsPr�vacyPol�cySampleTemplatePrivacyPolicyDevelopmentGuide


SecurityJustificationSecur�typerta�nsto�nformat�on,documents,databases,fac�l�ty,and personnel and includes measures such as authorization, encryption, access control, and confidentiality. In determining howmostappropr�atelytoprotectdata,therearemanypol�cyandtechn�cal�ssuesfordataownerstocons�der.It�s�mportantthatpol�cy�ssuesbedec�deduponbeforetechn�cal�ssuesaredeveloped.

Thepr�vatesector�saffectedbymarketforces,shareholdervalue,andvar�ousrulesandregulat�onsregard�ngtheshar�ngandstorageof�nformat�on,�nclud�ngant�trustlawsandtheFreedomofInformat�onAct(FOIA).TheHomelandSecur�tyActof2002statesthattheCr�t�calInfrastructureInformat�onActgrantsanexempt�onfromFOIAfortheU.S.DepartmentofHomelandSecur�ty(DHS)whenpr�vatesectorcompan�esprov�decr�t�cal�nfrastructure�nformat�onforthepurposesofhomelandsecur�ty-related�ssues.

Inadd�t�on,theCr�t�calInfrastructureInformat�onActprov�desfortheprotect�onofcr�t�cal�nfrastructure�nformat�onsubm�ttedtoDHSandsubsequentlysharedw�thlocalandstateagenc�esforthepurposesofensur�ngtheres�l�enceofcr�t�cal�nfrastructureoperat�onsor�nfurtheranceofan�nvest�gat�onofacr�m�nalact.50Whenpr�vatesectorent�t�essubm�tcr�t�cal�nfrastructure�nformat�ontothefus�oncenter,thecentermustensuretheinformation is protected from unauthorized disclosure. Fusion centerleadersh�pshouldbeawareoflocal,state,andfederallawsregard�ngthereleaseof�nformat�on,�nclud�ngstatesunsh�nelawsandFOIA.

Fac�l�tyandpersonnelsecur�tyshouldalsobeapartofthecenter’ssecur�typlan.Appropr�atesecur�tyclearancesshouldbeobta�nedforpersonnelw�th�nthefus�oncenterandkeydec�s�onmakerswhoneedaccess.Secur�typlansshouldbemarked,handled, and controlled as sensitive but unclassified information. Somequest�onstocons�derwhendevelop�ngasecur�typol�cyandplan�nclude:

50 HomelandSecur�tyActof2002,Cr�t�calInfrastructureInformat�on,www.dhs.gov/�nterweb/assetl�brary/CII_Act.pdf.

Whodoesthedataownerwanttohaveaccess?Howshouldusersaccessthedata?Whataccessmethodsarenecessaryfortheusers’jobs?Shouldaud�tsbeusedtoensureproperuseofdata?Shouldcentersconductbackgroundchecksonpersonnel?Whatsecur�tyneedsex�stforthefac�l�ty?Whatsecur�ty�sneededforthedata?Shouldasystem-logg�ngmechan�smbeused?

Issues for ConsiderationWhendevelop�ngsecur�typrotocols,cons�der:

Adopt�ngestabl�shedmodelsforsecure�nformat�onand�ntell�genceshar�ng,suchasReg�onalInformat�onShar�ngSystems(RISS),LawEnforcementOnl�ne(LEO),Reg�onalDataExchange(R-DEx),andHomelandSecur�tyInformat�onNetwork(HSIN).Addressing limited/restricted access, authorization, authent�cat�on,andencrypt�on.Apply�ngsecur�typol�c�estobothphys�calandelectron�cformsof�nformat�on.

Guideline 9Ensure the appropriate security measures are in place for the facility, data, and personnel.


Us�ngtheApplyingSecurityPracticestoJusticeInformationSharingdocument.Determ�n�ngaccesslevelsandma�nta�n�ngapol�cyonthelevelof�nformat�onreleased.Ver�fy�ngaccessbasedoncr�ter�aestabl�shedbygovernancestructure.Creating a form to be submitted by the agency authorizing access/superv�soryapproval.Conduct�ngbackgroundchecksonpersonnel.Utilizing local or state lead law enforcement agency backgroundcheckstandardsonpubl�csafetyandpr�vatesectorpart�c�pants,totheextentperm�ss�blebystatelaw.Clearly defining in the Memorandum of Understanding (MOU)allbackgroundcheckcr�ter�aorgu�del�nestolawenforcement,publ�csafety,andpr�vatesectorpartners.Consult�ngtheNationalCriminalIntelligenceSharingPlan(NCISP)(Recommendat�on28)whendevelop�ngabackgroundcheckpol�cy.Us�ngappl�cablesecur�tygu�del�nesforaccesscontrol.Prov�d�ngrelevantsecur�tyclearances.Creat�ngandprov�d�ngatra�n�ngcomponentoncentersecur�typrotocols.Utilizing relevant local, state, and federal building security requ�rements.Utilizing relevant portions of 28 CFR Part 23 as it relates to secur�ty.Appointing a privacy officer as a central point for compliance andovers�ght.

Centers may also consider maintaining a security officer who �srespons�bleforevaluat�ngandprov�d�ng�nformat�onaboutthesecur�typrogramtomanagementandcommun�cat�ngsecurity requirements and concerns to the organization. The security officer conducts security training and awareness andpreparesapol�cyonsecur�ty.Anybreach�ssueswouldbe reported to and investigated by the security officer. The security officer should also coordinate background checks on centerpersonnel.Backgroundchecksare�mportantbecause,althoughthe�nformat�onand�ntell�genced�ssem�natedbythe fusion center may be unclassified, it is still sensitive, and thereforeallappropr�atemethodsof�nformat�onprotect�onshouldbeundertaken,�nclud�ngbackgroundchecks.TheNCISPstatesthat“backgroundrequ�rementsforaccesstothe nationwide sensitive but unclassified communications capab�l�tybylawenforcementpersonnelshallbecons�stentw�threqu�rementsappl�edtothedes�gnat�onandemploymentofswornpersonnel,assetbythepart�c�pat�ngstateortr�balgovernment.”51Cons�derat�onshouldbeg�ventocolocat�ngw�thother intelligence centers, such as High Intensity Drug Trafficking Areas(HIDTA)orotherlawenforcementfac�l�t�es,�nordertosharesecur�tyrespons�b�l�t�es.

ApplyingSecurityPracticestoJusticeInformationSharingprov�desdeta�lsonhowtosafeguardcr�t�calelementsof�nformat�onshar�ng�n�t�at�ves,aswellasthe�nfrastructureand�ntegr�tyofdata,systems,fac�l�t�es,andpersonnel.Accord�ngtothedocument,thefollow�ng�ssuesshouldbecons�deredwhen

51 NCISP,pp.24-25.

develop�ngandadher�ngtosecur�typol�c�es:

Ident�fypotent�alphys�calthreatstodepartmentalcomputersystemsandnetworks.Establ�shpol�c�esandprocedurestothwartpotent�alphys�calthreats.Conductaud�tstomon�toremployeecompl�ancew�thdepartmentpol�c�esandprocedures.Cons�der�nclud�ngthefollow�ngphys�calsecur�typol�c�es�nthe organization’s overall security policy:

Identify unauthorized hardware attached to the departmentcomputersystem;makerout�nechecksofsystem hardware for unauthorized hardware. L�m�t�nstallat�onofhardwareandsoftwareownedbyemployeesondepartmentdesktopworkstat�ons.Ident�fy,tag,and�nventoryallcomputersystemhardware.Conductregular�nspect�onsand�nventor�esofsystemhardware.Conductunscheduled�nspect�onsand�nventor�esofsystemhardware.Implementpol�c�esthat�nstructemployees/usersonhowtoreactto�ntrudersandhowtorespondto�nc�dentswherean�ntrus�onhasbeendetected.

Require background checks on all employees every five years.

Federalregulat�on28CFRPart23�sagu�del�neforlawenforcementagenc�esthatoperatefederallyfunded,mult�jur�sd�ct�onalcr�m�nal�ntell�gencesystems,and�tprov�desthefollow�nggu�del�nesregard�ngsecur�ty:

Thedatabase,manualorelectron�c,shallbelocated�naphys�callysecuredareathat�srestr�ctedtodes�gnatedauthorized personnel. Only designated authorized personnel will have access to �nformat�onstored�nthedatabase.All authorized visitors, regardless of agency, are required to register with designated authorized personnel prior to gaining adm�ss�ontothefac�l�tyandphys�callocat�onhous�ngthedatabase.All authorized registered visitors will be escorted by designated authorized personnel for the duration of the visit. All hard-copy submissions and/or manual files will be secured by lead agency-designated authorized personnel when not be�ngusedandattheendofeachsh�ft.Employmentpol�c�esandproceduresforscreen�ng/reject�ng,transferr�ng,orremov�ngpersonnelhav�ngd�rectaccessw�llbeadopted.When direct remote terminal access is authorized by part�c�pat�ngagenc�es,pol�c�esandproceduresaddress�ngthefollow�ngadd�t�onalsecur�tymeasuresshallbeadopted:

Identification of authorized remote terminals and security ofterm�nals.


Identification and verification of an authorized access officer (remote terminal operator).Identification of levels of dissemination of information as d�rectedbythesubm�tt�ngagency.Rejection of submissions unless critical data fields are completed.Technolog�calsafeguardsonaccess,use,d�ssem�nat�on,andrev�ewandpurge.Phys�calsecur�ty.Training and certification of participating agency personnel.Aud�tsand�nspect�onsofpart�c�pat�ngagenc�es,�nclud�ngfile data-supporting submissions, security of access term�nals,andpol�cy-and-procedurecompl�ance.Documentat�onforaud�ttra�lsoftheent�reoperat�on.


ApplyingSecurityPracticestoJusticeInformationSharing,http://�t.ojp.gov/documents/asp/�ntroduct�on/�ndex.htmCr�t�calInfrastructureInformat�onActof2002,www.dhs.gov/�nterweb/assetl�brary/CII_Act.pdfNat�onalInst�tuteofStandardsandTechnology(NIST)templateandexamplepol�c�es,http://csrc.n�st.gov/faspSafeguarding Classified and Sensitive But Unclassified Information,ReferenceBookletforState,Local,Tribal,andPrivateSectorPrograms,U.S.DepartmentofHomelandSecur�ty,May2005



Facility, Location, and Physical InfrastructureJustificationEnsur�ngthatpart�c�pantsare�ntegrated�sakeyelementofthefus�oncenter.It�s�mportanttobr�ngtechnology,systems,andpeopletogether.Integrat�ngthesecomponentsstreaml�nesoperations, creates an effective and efficient environment, and �ncreasesproduct�v�ty.Thereareanumberofwaysto�ntegratepart�c�pants.Twoopt�onsarepresentedforcons�derat�on—colocat�ngandv�rtual�ntegrat�on.Colocat�ngpersonnel�nonefac�l�ty�sthepreference.

Colocat�ngpart�c�pat�ngent�t�es�mprovescommun�cat�onandbreaksdownbarr�ers.Often,lackofresourcesandfund�ngcan�mpedetheab�l�tytocolocate.However,�t�srecommendedthatpart�c�pat�ngagenc�esstr�vetolocatepersonnel�nthesamefac�l�ty,whenposs�ble.Colocat�onconsol�datesresourcesandequ�pment.Inadd�t�on,�tfostersanenv�ronmenttodevelopandexchange�nformat�onand�ntell�gence.

Ifcolocat�ng�snotafeas�bleopt�onforafus�oncenter,part�c�pat�ngent�t�esmaycons�derv�rtual�ntegrat�on,that�nvolvesl�nk�ngthe�nformat�onshar�ngandcommun�cat�onssystemssopersonnelcanseamlesslyaccessandexchange�nformat�on.Fortunately,technologyhas�mprovedgreatlyovertheyearsandcont�nuestogeneratenewand�nnovat�vecapab�l�t�es.V�rtual�ntegrat�oncanbeaneffect�vetechnologysolut�onfor�ntegrat�ngpersonnelandprocesses.

Regardlessoftheopt�onafus�oncenterchooses,�t�s�mportantto ensure flexibility and scalability, allowing for each step of the �ntell�genceprocesstobeconducted.

Issues for ConsiderationTheLawEnforcementIntell�genceFus�onCenterFocusGroup(FCFG)preferredthatpart�c�pat�ngent�t�esbecolocated.However, they also recognized the logistical issues and obstacles affect�ngtheab�l�tytocolocate.Inadd�t�on,thefocusgrouprecognized that not colocating also has benefits, such as

theab�l�tyformob�lecapac�ty,cont�ngencyoperat�onsdur�ngemergencies, and flexibility in offering services and support. ThePubl�cSafetyFCFGacknowledgedthatw�ththe�nclus�onofpubl�csafetyent�t�es,colocat�onmaynotalwaysbefeas�ble.L�a�sonsmaybeestabl�shedw�ththevar�ouspubl�csafetyent�t�esthatcanbemadeoperat�onalwhentheneedar�ses.

Furthermore,thePr�vateSectorFCFGnotedthatduetothevastnumberandtypesofpr�vate�ndustryw�th�najur�sd�ct�on,colocat�onmaynotbeatta�nable.Instead,thefocusgroupdevelopedopt�onsfor�ntegrat�ngpr�vatesectorent�t�es.Oneopt�on�sto�nst�tutearotat�ngpr�vatesectordesk.Th�sw�llallowd�fferentent�t�esfull-t�mepart�c�pat�onw�th�nthefus�oncentertobothunderstandthework�ngsofthefus�oncenterandpart�c�pate�ntheprocessesthattakeplace.By�n�t�at�ngarotat�ngdesk,var�ouspr�vatesectorent�t�esw�llhavetheab�l�tytopart�c�pateandval�datethe�r�nvestment�nthefus�oncenter.Anotheropt�onfor�ntegrat�ngthepr�vatesector�sto�dent�fysubject-matterexpertsw�th�nthepr�vatesectorwhocanprov�defus�oncentersw�thexpert�seastheneedar�ses.Forexample,whenathreatis made on the transportation industry, identified subject-matter expertsfromvar�oustransportat�onent�t�escanbecontactedbythefus�oncentertodeterm�nehowthethreatw�ll�mpactthejur�sd�ct�onand�ndustry.

Guideline 10Integrate technology, systems, and people.


Anumberoflog�st�cal�ssuesmustbeaddressedwhendec�d�ngonafac�l�tyandlocat�onforafus�oncenter.Thepr�mary�ssues,not�npr�or�tyorder,�nclude:

Connect�v�tyW�llthefus�oncenter,emergencyoperat�onscenter,orotherpartnersbeconnected?Ifso,how?

Scalab�l�tyEnsurethefac�l�tyallowsforfutureandemergencyexpans�on.

Secur�tyEnsuresecur�tyforthefac�l�ty,data,personnel,andv�s�tors(seeGu�del�ne9).

RedundancyEnsureredundancyforthe�nfrastructure,resources,personnel,systems,etc.

EmergencyPowerCont�nu�tyofOperat�onsPlan(COOP)Threat/Vulnerab�l�tyAssessments

Usepr�vatesectorsubject-matterexpertstodeterm�ner�sksbasedonthreatassessments.

Pol�t�calIssuesRecognize that the political climate will be different for eachcenter.Work with and inform political officials and policymakers regularly.

AccessEnsurecenterpersonnelhaveseamlessaccesstoeachother.

PersonnelEnsurefullandequalrepresentat�onatlocal,state,andfederallevels.Ensurerepresentat�onfromlawenforcement,publ�csafety,andpr�vatesectorcomponents.

Author�ty/Regulat�onsFollowappropr�atepol�cy,statutes,ConceptofOperat�ons(CONOPS),andothergu�del�nes.

RolesandRespons�b�l�t�esClearly define personnel responsibilities, including roles dur�ngemergencys�tuat�ons.

Site SelectionWhenselect�ngorbu�ld�ngas�teforafus�oncenter,�t�s�mportantforthes�tetobebasedonthefunct�onalneedsofthecenter.Atam�n�mum,as�teshouldbedes�gnedbasedonthefollow�ngfunct�onalelements:

Collect�on/datamanagementAnalys�sCommandandcontrol/execut�veDeconflictionCommun�cat�onandd�ssem�nat�on

Fac�l�t�esmanagementFeedback

Ifthecenterplansonmanag�ngmult�ples�tes,add�t�onalcons�derat�onshouldaddressconnect�v�tyandcollaborat�on�ssues.

Thefollow�ngl�stconta�nssomekeycomponentstoass�stagenc�es�ndevelop�ngaplantolocate,acqu�re,and/orrenovate,andma�nta�nafac�l�ty:

Ident�fyfac�l�tyneeds.Ident�fyafac�l�typrojectteamtomanagefac�l�ty�ssues.

Ensurethatcenterpersonnelare�nvolved�ns�teselect�on.

Commun�catew�thcenterleadersh�p.Ident�fyandsecureneededfund�ng(seeGu�del�ne17).Conductaspace-needsanalys�s.

Utilize existing resources, when possible.ConsulttheU.S.GeneralServ�cesAdm�n�strat�on’sFacilitiesStandardsforthePublicBuildingsServicewhenbu�ld�ngafac�l�tytohousethefus�oncenter.Conducts�tev�s�ts.

Cons�dergeograph�calandenv�ronmental�ssues,aswellasconven�enceandlocat�on.Cons�derthesurv�vab�l�tyofthebu�ld�ng.

Conductam�ss�on/operat�onalcont�nu�tyassessment.Developatrans�t�onplanandt�metableforoccupancy.Workw�thtechn�calpersonneltoensurethatconnect�v�tyandsecur�ty�ssuesareestabl�shed.Tra�nstaffregard�ngfac�l�ty,secur�tymeasures,andpol�cyrequ�rements.ConductCont�nu�tyofOperat�onsexerc�sestoensuretheoperat�onalres�l�encyofthecenter.Ensureplansand/orproceduresare�nplaceforregularfac�l�tyevaluat�onandbu�ld�ngma�ntenance.

Physical SecurityPhys�calsecur�ty�ncludesallelementsthatmakeupthefac�l�ty:�tprotectspeople,property,andprocesses.Centersshouldplan,�dent�fy,des�gn,tra�n,and�mplementallappropr�atesecur�tymeasures;adheretothem;�dent�fyandcreateaprogramthatidentifies physical assets, threats, and vulnerabilities; assess and prioritize risks; and identify ways to resolve and respond to concernsorbreaches.52Aphys�calsecur�typlanshouldhave,atam�n�mum,thefollow�ngcomponents:53

R�skassessmentOperat�ngproceduresTra�n�ng,test�ng,andrehearsalplanManag�ngthreatsCommun�cat�onsplan

52 Dav�dHochman,DisruptionDefense:FacilitySecurityBreaches,2002.53 U.S.GeneralServ�cesAdm�n�strat�on,3ded.,www.gsa.gov,2004.


OccupantEmergencyPlan(OEP)COOP

Centersmaycons�derma�nta�n�ngafac�l�ty/secur�tymanageror officer who is responsible for preparing the facility security pol�cy,mon�tor�ngandadher�ngtothepol�cy,andtra�n�ngcenterpersonnelregard�ngthesecur�typol�cyandprotocols.Tra�n�ngofusers�scr�t�cal.Usersmustunderstandthe�rroleandrespons�b�l�ty�nadher�ngtoasecur�typlan,aswellashowtonot�fytheappropr�atemanagementwhen�ssuesorconcernsar�seregard�ngsecur�ty,suchaslostbadgesornoncompl�ance(seeGu�del�ne9).

Contingency PlanTheLawEnforcementIntell�genceFCFGrecommendedthatfus�oncenters�dent�fyaskeletonmodelforemergencyoperat�ons.Centersshoulddevelopacont�ngencyplan.Acont�ngencyplanenablesthesusta�nedexecut�onofm�ss�on-cr�t�calprocessesand�nformat�ontechnologysystemsdur�nganextraord�naryeventthatcausesthesesystemstofa�l.

Inadd�t�on,�t�srecommendedthatfus�oncentersdevelopandadoptaCOOPtoperformessent�alfunct�onsatanalternatelocat�ondur�nganemergency.COOPenableseachlevelofgovernmentandjur�sd�ct�ontopreserve,ma�nta�n,and/orreconst�tute�tscapab�l�tytofunct�oneffect�vely�ntheeventofathreat,d�saster,oremergency.ConsulttheU.S.DepartmentofHomelandSecur�ty(DHS)FederalEmergencyManagementAgencys’(FEMA)InterimGuidanceonContinuityofOperationsPlanningforStateandLocalGovernments,datedMay2004.

Security ClearancesMost�nformat�onneededbystateorlocallawenforcementcan be shared at an unclassified level. However, in those cases where it is necessary to share classified information, it

canusuallybeaccompl�shedatthe“Secret”level.Resourcesregard�ngsecur�tyclearancesare�ncludedontheresourceCD.Law enforcement should be cognizant of classification levels whend�str�but�ng�nformat�ontopubl�csafetyandpr�vatesectorent�t�es.Oneofthegoalsofthefus�oncenter�stoenhanceinformation sharing, and information classification barriers should be minimized. Rather than rely on clearances, fusion centers shouldattempttodeclass�fy�nformat�onand�ntell�gence,whenposs�ble,tod�ssem�natetopubl�csafetyandpr�vatesectorpartners.

Centers also need a secure operation to perform classified work. Centersmaycons�deruseoftheSens�t�veCompartmentedInformation Facility (SCIF) concept. An SCIF is defined as an accred�tedarea,room,groupofrooms,bu�ld�ng,oran�nstallat�onwhereSens�t�veCompartmentedInformat�on(SCI)maybestored, used, discussed, and processed. SCI is classified �nformat�onconcern�ngorder�vedfrom�ntell�gencesources,methods,oranalyt�calprocessesthat�srequ�redtobehandledw�th�nformalaccesscontrolsystemsestabl�shedbythed�rectoroftheCentralIntell�genceAgency.54


Execut�veOrders12068,12958,and13292Regard�ngClassified InformationFBISecur�tyClearanceandFrequentlyAskedQuest�onsGSA’sFacilitiesStandardsforthePublicBuildingsServiceIACPPoliceFacilityPlanningGuidelines:ADeskReferenceforLawEnforcementExecutives,www.�acp.org/documents/pdfs/Publ�cat�ons/ACF2F3D%2EpdfNat�onalInst�tuteofStandardsandTechnology,“Cont�ngencyPlanTemplate,”http://csrc.n�st.gov/fasp/FASPDocs/cont�ngency-plan/cont�ngencyplan-template.doc

54 Cr�m�nalIntell�genceGlossaryofTerms,November2004.



Human ResourcesJustificationSelect�ngpersonneldependsupontheneedsandfunct�onsofthecenter.Thecenterw�llconduct,atam�n�mum,allaspectsofthe�ntell�genceprocess.Staffw�llneedtheab�l�tytoperformanalyt�calfunct�onsandprov�destrateg�candtact�calass�stance.It�s�mportantforthecentertorecru�ttheh�ghestqual�ty�nd�v�dualsandtoensurecenterpersonnelareass�gnedappropriately. For example, leadership should ensure qualified personnelareselectedforkeyobject�vessuchascollect�onandanalys�s.Personnelshoulddemonstrateattent�ontodeta�l,�ntegr�ty,good�nterpersonalcommun�cat�onsk�lls,andtheab�l�tytoacceptandlearnfromconstruct�vecr�t�c�sm.

Publ�csafetyandpr�vatesectorpersonnelshouldbe�ncludedin staffing. Leadership should be cognizant of the integration of publ�csafetyandpr�vatesectorpartnersandthe�r�mportancetothesuccessofoperat�ons,thoughent�t�esforeachcomponentmayprov�depersonnel�nd�fferentways(full-t�merepresentat�on,apart-t�merepresentat�ve,oral�a�son).Publ�csafetyandpr�vatesector participation may fluctuate based on identified threats or ongo�ngoperat�ons.For�nstance,�fan�nformat�ontechnology(IT) threat is identified, public safety/private sector partners who are experts in the IT field may change from a liaison-type membership to full-time personnel until that threat is neutralized or unsubstantiated. Or, if hazardous material moves through the fus�oncenterjur�sd�ct�ononceamonth,publ�candpr�vatesectorpartners associated with hazardous materials may become full-t�mepersonnelw�th�nthefus�oncenterdur�ngth�soperat�on.

Fus�oncentermanagementshouldcons�derexchang�ngpersonnelw�thpr�vatesectorpartnerstoa�d�ntra�n�ngandunderstand�nghoweachcomponentfunct�ons.Cross-tra�n�ngw�lla�d�nprov�d�ngfus�oncenteranalystsw�thanunderstand�ngofthepr�vatesector,�nclud�ngwhatthreatsaffectthem,howthreatsarehandled,andthetypesof�nformat�onthatthepr�vatesectorcanprov�detofus�oncenters.Pr�vatesectorpersonnelass�gnedtothefus�oncenterw�llunderstandfus�oncenteroperat�onsand�nformat�onrequ�rements.

Furthermore,thegovernancebodyshouldcont�nuallyevaluatecentermembersh�pandpartners.Inshort,thefus�oncenterrepresents a fluid environment, and as new businesses and organizations are established within the jurisdiction, the governance body should reach out to these organizations.

Issues for ConsiderationWhen staffing a fusion center, consider:

Recru�t�ngpersonnelbasedonaConceptofOperat�ons(CONOPS)andcenterm�ss�onandgoals.Ma�nta�n�nga24-hour-a-day/7-day-a-weekoperat�onw�thappropriate staffing levels.Ensur�ngappropr�atecommandstructureandleadersh�p.Establ�sh�ngapermanentfull-t�mec�v�l�an(non-lawenforcement)pos�t�ontoprov�decont�nu�tyandcons�stency�nthelongterm(�.e.,fac�l�tymanager/centerd�rector).Maintaining a small core staff dedicated to specific funct�ons,suchasadm�n�strat�on,�nformat�ontechnology,commun�cat�ons,andgraph�cs.Creat�ngun�tsofoperat�on(orcr�medesks),suchas�ntell�gence,cr�m�nal�nvest�gat�ons(e.g.,v�olentcr�mes,drugs,andgangs),analyt�cal,andhomelandsecur�ty.Identifying and utilizing subject-matter experts from law enforcement,publ�csafety,andthepr�vatesector.Ensur�ngequal/proport�onalrepresentat�onofpersonnelfrompart�c�pat�ngent�t�es.Ma�nta�n�nglegalcounselded�catedtothefus�oncentertohelpclar�fylaws,rules,regulat�ons,andstatutesgovern�ngthecollect�on,ma�ntenance,andd�ssem�nat�onof�nformat�onandl�a�sonw�ththedevelopmentofpol�c�es,procedures,gu�del�nes,andoperat�onalmanuals.Liaising with the local prosecutor’s office.Secur�ngappropr�atenumberandtypesofsecur�tyclearancesforpersonneland�dent�fy�ngclearancesbasedonlocal,state,andfederalrequ�rements.Requ�r�ngam�n�mumtermcomm�tmentforfull-t�mecenterpersonnel.

Guideline 11Achieve a diversified representation of personnel based on the needs and functions of the center.


Ensur�ngaMemorandumofUnderstand�ng(MOU)addresseshumanresourcesmanagementand�ssues.Institutionalizing professionalism.Establ�sh�ngamechan�smtomanagetemporarypersonnel.Us�ngapersonnelcheckl�stwhenass�gn�ngorremov�ngpersonnelfromthecenter(seeSampleCheckl�stonresourceCD).

Example StaffingArizona Counter Terrorism Information Center (ACTIC)TheACTICw�lloperateona24-hour-a-day/7-day-a-weekbas�sand will function as a multiagency, all-hazard effort staffed by membersoftheDepartmentofPubl�cSafetyandotherlocal,state,andfederalagenc�es.

California State Terrorism Threat Assessment Center (STTAC) and Regional Terrorism Threat Assessment Centers (RTTAC)The STTAC and four RTTACs are all-crimes, all-hazards fus�oncentersthat�ntegratelocalJo�ntTerror�smTaskForces(JTTFs),FBIF�eldIntell�genceGroups(FIG),Terror�smEarlyWarn�ngGroups(TEWG),andotherstateagenc�es�nthe�roperations. Terrorism Liaison Officers (TLO) are designated at localagenc�esandhavenetworkaccesstotheCal�forn�aJo�ntReg�onalInformat�onExchangeSystem(CALJRIES)tol�nklocaloperat�onsand�nformat�ongather�ngw�ththeSTTACandRTTACs.

Rockland County Intelligence Center (RCIC)RCICprov�desserv�cestoalllawenforcementagenc�esandis composed of sworn officers from Rockland County law enforcement agencies. The Intelligence Center officers are assigned specialized “desks.” Each desk focuses on a specific typeofcr�m�nalact�v�ty,�nclud�ngburglary/robbery,counter-terrorism, factual data analysis, firearm tracking, identity crimes, organized crime, and street gangs.

Georgia Information Sharing and Analysis Center (GISAC)GISAC’s day-to-day operations, facilities, personnel, finances, andadm�n�strat�onaremanagedbyGeorg�aBureauofInvest�gat�onsuperv�sors.Thereareatotalof18personnelass�gned.

Statewide Terrorism Intelligence Center (STIC)—Illinois STICoperatesthree24-hour-a-day/7-day-a-weeksh�fts,w�thahalf-hour overlap on each shift for shift-change briefing. Each shift is staffed with one full-time watch officer and four contractual terror�smresearchspec�al�sts(TRS).STICma�nta�nsadd�t�onalsuperv�soryandoperat�onalstaffonthedaysh�ft.Eachemployee works a 37.5-hour workweek. Minimum staffing is one superv�sorandtwoTRSs,MondaythroughFr�day,andtwoTRSsonweekends.

Staffing Model TemplatesWhile most staffing models do not focus specifically on law enforcementpersonnel,therearesomegu�del�nesthatleadersh�pcanusetohelpadequatelystaffafus�oncenter.Dur�ngthefocusgroupmeet�ngs,thefollow�ngcategor�esofstaffing were recommended. These categories include:

Collect�onfunct�on—collect�onmanagementprocessAnalyt�calserv�cesTechn�calsupportCommun�cat�onsl�a�sonford�ssem�nat�onandshar�ngexternallyLeadersh�p/command—support�ng�ntell�gence-ledpol�c�ng

This staffing model follows the functions within the intelligence process.Focusgroupmembersrecommendedthattheintelligence process dictate the number and level of staffing. It�salso�mportanttocons�dertheneedforsuperv�soryandmanagementpos�t�ons,aswellastra�n�ngand�nformat�ontechnologysupportpersonnel.

Standards for AnalystsInsupportoftheNationalCriminalIntelligenceSharingPlan(NCISP),theInternat�onalAssoc�at�onofLawEnforcementIntell�genceAnalys�s(IALEIA)publ�shedtheLawEnforcementAnalyticStandardsbooklet,wh�ch�s�ncludedontheaccompany�ngresourceCD.Thebookletconta�nsstandardsregard�ngeducat�on,tra�n�ng,cont�nu�ngeducat�on,profess�onaldevelopment, certification, and analytic attributes. It is recommendedthatcentersfollowthesestandardswhenh�r�nganalysts,prepar�ng�nd�v�dualsforthepos�t�onofanalyst,and/orenhanc�ngan�nd�v�dual’ssk�llsandab�l�t�es(seeGu�del�ne14,Intell�genceServ�cesandProducts,formore�nformat�on).


LawEnforcementAnalyticStandards,http://�t.ojp.gov/documents/law_enforcement_analyt�c_standards.pdfPersonnelSampleCheckl�st


Training of Center PersonnelJustificationTraining helps personnel maximize the ability to effectively utilize tools in support of center functions. It is recommended thatfus�oncentersadheretothetra�n�ngobject�vesoutl�ned�ntheNationalCriminalIntelligenceSharingPlan(NCISP).Inadd�t�on,�t�srecommendedthatpersonnelwork�ngw�th�nthecentermeetthecoretra�n�ngstandardsdevelopedbytheGlobalIntell�genceWork�ngGroup(GIWG)andCounter-Terror�smTra�n�ngCoord�nat�onWork�ngGroup(CTTWG).Eachofthesix training classifications identified by the GIWG (intelligence analyst, intelligence supervisor, law enforcement officer, law enforcement executive, intelligence officer/collector, and train-the-tra�ner)haveun�questandards.Centerpersonnelshouldalsorece�veanoverv�ewofcenteroperat�ons,pol�c�esandprocedures,andanyun�queprotocolsorcommun�cat�onneeds.TheNat�onalGovernorsAssoc�at�on(NGA)CenterforBestPract�cespubl�shedapaper,StateIntelligenceFusionCenters:RecentStateActions,wh�chsurveyedthetypesofresourcesthatthestatesneedtocompletedevelopmentofor�mprovethe�r�ntell�gencefus�oncenters.55Numerousresponses�ncludedtheneed for additional training—specifically, training for analysts and superv�sors.

Publ�csafetyandpr�vatesector�ntegrat�on�ntofus�oncenterspresentsnewtra�n�ngobstaclesandopportun�t�es.Thoughlawenforcementhastrad�t�onallybeenthepr�mary�ntell�gencecomponent�ncr�meprevent�on,the�ntroduct�onofpubl�csafetyandthepr�vatesector�ntothe�ntell�genceprocessrequ�resadd�t�onaltra�n�ngonthe�ntell�genceandfus�onprocesses.Inadd�t�on,cross-educat�onaltra�n�ngshouldoccurbetweenthefus�oncenterandthepubl�csafetyandpr�vatesectorent�t�es�nordertog�veeachanunderstand�ngoftherespect�vebus�nesspract�cesw�th�neachcomponent,whattheycanprov�detofus�oncenters,andwhattheyneedfromfus�oncenters.

Fus�oncenterpersonnelshouldcons�derpart�c�pat�ng�ntabletopexerc�ses(TTX),funct�onalexerc�ses,andfull-scaleexerc�sesthat private sector organizations may stage. These exercises

55 Nat�onalGovernorsAssoc�at�on,CenterforBestPract�ces,StateIntelligenceFusionCenters:RecentStateActions,2005.

will assist fusion centers in institutionalizing partnerships with publ�csafetyandthepr�vatesectorthroughstrateg�candtact�cal�ntegrat�onandw�llalsoa�d�ntest�ngthecommun�cat�onsplan(seeGu�del�ne18).Fus�oncenterpart�c�pat�on�nthesetypesofexerc�sesw�llalsoa�d�n�dent�fy�ngthe�nformat�onrequ�rementsofthefus�oncenter,pr�vatesector,andpubl�csafetyent�t�es.

Guideline 12Ensure personnel are properly trained.


Thepubl�csafetyandpr�vatesectorcomponentsrepresentnontrad�t�onalgatherersof�nformat�onandpresentanopportun�tytoenhanceand�ncreasetheamountandtypesofdatathatfus�oncentersrece�ve.Becausetheseent�t�esarenontrad�t�onalandmaynotbeawareofthe�ntell�gencecycleandthe�nformat�onrequ�rementsofthefus�oncenter,fus�oncentersshouldprov�detra�n�ngtofus�oncenterstaffandpubl�csafetyandpr�vatesectorl�a�sons.Th�stra�n�ngexpla�nsthetypesof�nformat�onthatnontrad�t�onalgatherersshouldbeawareof,the�mportanceofth�s�nformat�on,howtogatherthe�nformat�on,andwhotoreport�tto.

Issues for ConsiderationWhenrev�ew�ngtra�n�ng,cons�der:

Ident�fy�ngtra�n�ngneedsofcenterpersonnel.Providing specialized training, as appropriate.Prov�d�ngtra�n�ngonthefus�oncenteroperat�ons,NCISP,�ntell�gencecycle,andthefus�onprocess.Prov�d�ng�nformat�oncollect�ontra�n�ngforfus�oncenterpart�c�pants.Prov�d�ngtra�n�ng�ntact�calandstrateg�c�ntell�gence.Seek�ngaccred�tedorstandards-compl�anttra�n�ngprogramsforgovernmentpersonnel.Utilizing private security entities for subject-matter training (e.g.,cybersecur�ty).Emphasizing analysis and its link to intelligence-led policing.Develop�ngmater�alsand�ntegrat�ngoutreachefforts.Adher�ngtoothertra�n�ngmandates.Ensuring that personnel assigned to specific crime desks receive crime-specific training.Utilizing scenario-based training, simulations, games, and tabletop and field exercises.Part�c�pat�ng�npubl�csafetyandpr�vatesectortabletop,funct�onal,andfull-scaleexerc�ses.Part�c�pat�ng�ncollege-andun�vers�ty-sponsored�ntell�genceandanalysttra�n�ngprograms.

NCISP Training Objectives and Minimum Training StandardsInNovember2003,theCr�m�nalIntell�genceTra�n�ngCoord�nat�onStrategy(CITCS)Work�ngGroupwasestabl�shedtodeveloparecommended�ntell�gencetra�n�ngcoord�nat�onstrategy. The CITCS recognized that there were voids in existing cr�m�nal�ntell�gencetra�n�nganddupl�cat�onofeffort�ntermsoftra�n�ngdevelopmentanddel�very.TheCITCSmetthroughout2004 and finalized their recommendations in June 2004. The CITCSrecommendat�onsareconta�ned�nthereportent�tledMinimumCriminalIntelligenceTrainingStandardsforUnited

StatesLawEnforcementandOtherCriminalJusticeAgenciesandhavebeenendorsedbytheGIWGTra�n�ng/OutreachComm�ttee,theCr�m�nalIntell�genceCoord�nat�ngCounc�l(CICC),theCTTWG,andtheGlobalAdv�soryComm�ttee.Thereport�s�ncludedontheresourceCD.Theserecommendedm�n�mumcr�m�nal�ntell�gencetra�n�ngstandardsweredevelopedfor the following training classifications:

Intell�genceanalystIntell�gencemanagerLawenforcementexecut�ve

General law enforcement officer (basic recruit and �n-serv�ce)Intelligence officer/collector Tra�n-the-tra�ner

These efforts are significant, not only in implementing the tenets of NCISP but also in building awareness, institutionalizing the �mportanceofcr�m�nal�ntell�gence,�ncreas�ngthevalueof�ntell�gencepersonnel,foster�ngrelat�onsh�psamongthelawenforcementcommun�ty,�mprov�ngtheab�l�tytodetectandpreventactsofterror�smandothercr�mes,andcreat�ngasaferhome for citizens.

The U.S. Department of Homeland Security (DHS), Office of StateandLocalGovernmentCoord�nat�onandPreparedness,is currently developing training in the field of intelligence and information sharing capabilities. Once finalized, this training will be available for widespread utilization by state and local governments,aswellasallrelevantfus�oncenterpart�c�pants.56

It�salsorecommendedthatcenterstaffrece�vetra�n�ngregard�ngfac�l�tysecur�tyandoperat�onsand�nformat�onsecur�ty,aswellasthecenter’spol�c�esandprocedures.


Counter-Terror�smTra�n�ngCoord�nat�onWork�ngGroup(CTTWG)Webs�te,www.counterterror�smtra�n�ng.govHomelandSecur�tyPres�dent�alD�rect�ve5(HSPD-5),www.wh�tehouse.gov/news/releases/2003/02/20030228-9.htmlHomelandSecur�tyPres�dent�alD�rect�ve8(HSPD-8),www.fas.org/�rp/offdocs/nspd/hspd-8.htmlInternat�onalAssoc�at�onofLawEnforcementIntell�genceAnalysts(IALEIA),www.�ale�a.org/Internat�onalAssoc�at�onofD�rectorsofLawEnforcementStandardsandTra�n�ng(IADLEST),www.�adlest.org/MinimumCriminalIntelligenceTrainingStandardsforUnitedStatesLawEnforcementandOtherCriminalJusticeAgencies,www.�t.ojp.gov/documents/m�n�mum_cr�m�nal_�ntel_tra�n�ng_standards.pdfNat�onalWh�teCollarCr�meCenter(NW3C),www.nw3c.org

56 More�nformat�onaboutthetra�n�ngopportun�t�esava�lablecanbefound at the Office for Domestic Preparedness Webs�teatwww.ojp.usdoj.gov/odp/.


Multidisciplinary Awareness and Education JustificationInadd�t�ontotra�n�ngcenterpersonnel(seeGu�del�ne12),acentershouldprov�degeneralawarenesstra�n�ngforallthose�nvolved�n�ntell�gence,regardlessofwhethertheyareass�gnedd�rectlytothecenter.All�nvest�gat�veor�ntell�gencepersonnel,aswellasnontrad�t�onalgatherersof�nformat�on—suchasfire, emergency management, and health personnel—should rece�vetra�n�ng.Personnelshouldbeequ�ppedto�dent�fysusp�c�ousact�v�t�esorthreatsandprov�de�nformat�ontofus�oncenterpersonnel,asappropr�ate.Further,nontrad�t�onalpartnersshouldbeprov�dedw�ths�tuat�onalawarenesstra�n�ng,specifically, training that aids in the identification of activities and eventsthatmayberelatedtoacr�m�nalenterpr�se.Inadd�t�on,pol�cymakersandleg�slatorsshouldunderstandthecenter’sm�ss�onandgoals�nordertoeffect�velysupportcenterefforts,makedec�s�onsregard�ngfund�ngandresourceallocat�on,andrespondappropr�atelydur�ngemergenc�es.Partofth�sprocess�sdevelop�ngoutreachmater�alsandensur�ngthattra�n�ng�songo�ngandrelevant.

Thetra�n�ngobject�vesandrecommendedm�n�mumcr�m�nal�ntell�gencetra�n�ngstandardsdeveloped�nsupportoftheNationalCriminalIntelligenceSharingPlan(NCISP)applytoth�sstandard(alsoseeGu�del�ne12,Tra�n�ngofCenterPersonnel).Recommendedm�n�mumcr�m�nal�ntell�gencetra�n�ngstandardshave been developed for the following training classifications:

Intell�genceanalystIntell�gencemanagerLawenforcementexecut�veGeneral law enforcement officer (basic recruit and in-service)Intelligence officer/collector Tra�n-the-tra�ner

Training standards for analysts, officers, and collectors should�ncludeelementsregard�nghowto�dent�fyandcollect�ntell�gence.Inadd�t�on,therecommendat�onsformanagers

andexecut�vesoffergu�del�nesand�nformat�onperta�n�ngtothe importance of intelligence, process collecting, and analyzing andd�ssem�nat�ng�ntell�gence;howtomanageandsupportan�ntell�gencefunct�on;andhowtodevelopandadheretoappropr�atepol�c�es.Nontrad�t�onalcollectorsof�ntell�gence,public safety entities such as fire, health, and agriculture, andthepr�vatesectorshouldhaveawarenesstra�n�ng,�nclud�ng�nformat�ongather�ng.Manylocal,state,andpr�vateorganizations provide awareness-level training. Centers should �dent�fyappropr�atetra�n�ngmechan�smsandprov�deoutreachtopersonnel.

Thegeneralpubl�cshouldbeknowledgeableandprepared.Th�slevelofpubl�cawarenessandeducat�onrequ�resafocusedandconcentratedeffort.Opt�onsforleadersh�pto�nformthepubl�caboutfus�oncenters�ncludepart�c�pat�onattownhallmeet�ngs,c�tycomm�ss�onmeet�ngs,ormed�a�nteract�on(newspaperart�cles,telev�s�onnewsstor�es).It�s�mportant�norderforthepubl�ctosupportthefus�oncentertounderstand�tspurposeandm�ss�on.

Issues for ConsiderationWhenrev�ew�ngawarenesstra�n�ng,cons�der:

Ta�lor�ngtra�n�ngbasedontheneedsof�nd�v�dualpersonnel(i.e., law enforcement officers and executive, public safety, andpr�vatesectorrepresentat�ves).Ident�fy�ngwhatelements�ntell�gencepersonnelneedregard�ngcenteroperat�ons.Develop�ngmater�alsand�ntegrat�ngoutreachefforts.Commun�cat�ngw�thallagenc�esserv�cedbythecentertoensureappropr�atetra�n�ng.Prioritizing the intelligence function to address threats posed in specific fusion center jurisdictions.Integrat�ng�ntell�gence-ledpol�c�ngtosupportcustomerneeds, define tasks, and prioritize functions. Utilizing computer-based training for nontraditional information gatherers (e.g., security officers).

Guideline 13Provide a multitiered awareness and educational program to implement intelligence-led policing and the development and sharing of information.


Ensur�ngtra�n�ng�ncludesawarenessofpr�vacy�ssuesassoc�atedw�th�nformat�oncollect�on,storage,andd�ssem�nat�on.


Counter-Terror�smTra�n�ngCoord�nat�onWork�ngGroup(CTTWG)Webs�te,www.counterterror�smtra�n�ng.govHSAC’sIntelligenceandInformationSharingInitiative:HomelandSecurityIntelligenceandInformationFusionreportMinimumCriminalIntelligenceTrainingStandardsforUnitedStatesLawEnforcementandOtherCriminalJusticeAgencies,www.�t.ojp.gov/documents/m�n�mum_cr�m�nal_�ntel_tra�n�ng_standards.pdf


Intelligence Services and ProductsJustificationThemajor�tyofthe�n�t�at�vesrev�eweddur�ngthefocusgroup’sprocessesoperate24hoursaday,7daysaweekandactasaclear�nghousefor�nformat�onand/or�ntell�genceshar�ng.The�ntell�genceprocessactsastheframeworkbutdoesnotl�m�t�nformat�onshar�ngto�ntell�genceproductd�ssem�nat�on.Assuch, personnel utilize the intelligence process while producing analyt�calserv�ces,suchascr�me-patternanalys�s,assoc�at�onanalysis, telephone-toll analysis, flowcharting, financial analysis, andstrateg�canalys�s.Fus�oncentersshouldtake�ntoaccounttheneedsandrequ�rementsofthe�rrespect�vejur�sd�ct�onswhenproduc�ngproductsandserv�ces.

Asaresultofshar�ng�nformat�onthroughoutthe�ntell�genceprocess,the�n�t�at�vesprov�deanarrayof�ntell�genceproducts,suchas�ntell�gencereports,br�efs,threatassessments,charts,graphs,andmapp�ng.Thus,�t�s�mportantthatcenterpersonnel,espec�allyanalysts,befam�l�arw�thcomputerappl�cat�onsthathave�nformat�onstoragecapab�l�t�eswh�challowtheusertosort, query, and filter information; applications for presenting information; and applications for linking and flowcharting.

Some initiatives have compartmentalized their operations bycreat�ngd�v�s�ons,suchas�nvest�gat�ons,�ntell�gence,andadm�n�strat�on.Th�sstructuremayass�st�n�dent�fy�ngandass�gn�ngrespons�b�l�t�es,aswellashold�ngpersonnelaccountable.It�s�mportanttoknowwhotheprogram’scustomersareandwhattypesofserv�cesandproductstheyneed.

Issues for ConsiderationIt�srecommendedthatlawenforcement�ntell�genceprogramsproducebothstrateg�candtact�calproductstosupportthem�ss�onandpr�or�t�esofthecenter.Amajorpurposeof�ntell�genceanalys�s�smanagementdec�s�onmak�ng.Cons�derprov�d�ngthefollow�ngserv�cesandproducts:

Invest�gat�veandtact�calresponseProact�vestrateg�canalys�s

Intell�gencesupportfor�nvest�gat�onsV�sual�nvest�gat�veanalys�sAlerts and notificationsDeconflictionTarget identificationCr�t�cal�nfrastructureanalys�sTra�n�ngopportun�t�esGeospat�al�mag�ngCriminal backgrounds and profiles Casecorrelat�onCr�me-patternanalys�sAssoc�at�on,l�nk,andnetworkanalys�sTelephone-tollanalys�sFlowchart�ngF�nanc�alanalys�sIntelligence reports and briefingsThreatassessmentsTerror�smcalendar

Centers should prioritize their intelligence function, based on specific threats in their jurisdictions/regions, and integrate intelligence-led policing to support customer needs, define tasks, and prioritize functions. When specific threats are identified, centers should partner with agencies and organizations that can a�d�nanalys�s,e.g.,computeranalys�sandforens�canalys�s.Forexample,�fagovernmentnetworkhasbeenhacked�nto,thencomputerresourcesfromlawenforcementandthepr�vatesectormayhelpthe�nvest�gat�onandanalys�s.

Standards for Analytical ProductsTheNationalCriminalIntelligenceSharingPlan(NCISP)recommends that the agency chief executive officer and themanagerof�ntell�gencefunct�onsshould“supportthedevelopmentofsound,profess�onalanalyt�cproducts(�ntell�gence).”Onewaytoaccompl�shth�s�storecommendthatproductsmeetsubstant�vecr�ter�a.TheInternat�onal

Guideline 14Offer a variety of intelligence services and products to customers.


Assoc�at�onofLawEnforcementIntell�genceAnalysts’(IALEIA)LawEnforcementAnalyticStandardsbookletprov�desstandardsforanalys�sthatcorrespondtothe�ntell�genceprocess.Thesestandardsfocuson:

Plann�ngD�rect�onCollect�onLegalconstra�ntsEvaluat�onCollat�onAnalyt�caccuracyComputerized analysisAnalyt�cproductcontentAnalyt�coutcomesD�ssem�nat�onplanAnalyt�creportAnalyt�cproductformatAnalyt�ctest�monyDatasourceattr�but�onAnalyt�cfeedbackAnalyt�cproduct�onevaluat�on

It is recommended that analysts or individuals fulfilling the analyt�cfunct�onadheretothestandardsoutl�ned�nthebooklet.Acopyofthebooklet�s�ncludedontheresourceCD.

Infrastructure Assessment and ResourcesA significant role for any fusion center concerned with homeland secur�ty,�strack�ngcr�t�cal�nfrastructureandassess�ngthel�kel�hoodof�tbe�ngthetargetofaterror�stattack.It�s�mperat�vethatthere�scollaborat�onbetweencenterpersonnelandpr�vatesectorpartnerswhenr�skassessmentsarebe�ngconductedregard�ngthepr�vatesector.Thepr�vatesectorhasdeta�ledknowledgeof�ts�nformat�on,processes,and�nfrastructure,and�tssubject-matterexpertsandsecur�typersonnelcan�dent�fyaccurateandcomprehens�ver�sks.Fus�oncenters may also analyze risks within the jurisdiction, including thoser�sksassoc�atedw�thpubl�csafetyandpr�vatesecur�ty.R�skassessments,whenperformed�nconjunct�onw�thpr�vatesectorsecur�tyandsubject-matterexperts,w�lla�dthecenter�n�dent�fy�ngkey�nfrastructurewhenthreatsarepresent.Fus�oncentersmayalsobetaskedw�thcatalog�ngcr�t�cal�nfrastructure;develop�ngamethodologytotrack�ntell�gencerelat�ngtothreats,explo�tablevulnerab�l�t�es,andtheconsequencesoflossofthosefac�l�t�es;ma�nta�n�ngandshar�ngw�thpartnersal�stofspec�aleventsthatmayposeathreat(e.g.,h�ghv�s�b�l�tyandlargecrowds);anddevelop�ngamechan�smtoupdateth�s�nformat�onregularly.

Center personnel must utilize the relationships between regulatorygovernmentagenc�esandthepr�vatesectorwhenconduct�ngr�skassessments,theserelat�onsh�pshavealreadybeen established and expertise identified. For the nonregulated industry, center personnel should meet with industry officials to �dent�fythecr�t�cal�nfrastructureandwhat�sava�lable.Thesemeet�ngsw�llalsolaythefoundat�onfordevelop�ngtrustedrelat�onsh�psw�thsubject-matterexperts.Thefus�oncentershouldbeawarethat�nformat�ongatheredbyregulatoryagenc�esmaybeprotectedbyregulat�onsand,therefore,notbesubjecttod�ssem�nat�on.

Inadd�t�on,thecentermaydevelopassessmentsofthevulnerab�l�t�esandsecur�typrotocolsforcr�t�calfac�l�t�es.Th�smayrangefroms�mplyma�nta�n�ngtheassessmentscompletedbyotherstoactuallypart�c�pat�ng�non-s�teassessments.E�therway,�t�s�mportantthatthecenterrece�ver�skassessmentstoaid in threat identification and prevention. The fusion center may cons�derwork�ngw�ththeareaJo�ntTerror�smTaskForce(JTTF),Ant�-Terror�smAdv�soryCounc�l(ATAC),Informat�onShar�ngandAnalys�sCenter(ISAC),andtheU.S.DepartmentofHomelandSecur�ty(DHS),�nclud�ngtheUSP3portal,aswellasotherstateandlocalauthor�t�es,todes�gnand�mplementoperat�onalres�l�encyobject�vesto�ncludeprotect�vemeasuresthatm�t�gatevulnerab�l�t�es.Included�ntheresourcedocuments�sasect�onfromtheFlor�daDepartmentofLawEnforcement(FDLE)TerrorismProtectionManualthatcoverscr�t�cal�nfrastructureassessments. Industry-specific subject-matter experts should be used to aid in infrastructure assessments and the identification ofr�sksassoc�atedw�ththepr�vatesector.Subject-matterexpertshavetheknowledgeandtra�n�ngto�dent�fyandassesscr�t�cal�nfrastructureassoc�atedw�ththepr�vate�ndustryandarevaluableassetsforfus�oncenters.Furthermore,work�ngw�thsubject-matterexpertsw�lldemonstratecont�nuedcollaborat�onbetweenpr�vate�ndustr�esandfus�oncentersandw�llfostertrustandthecreat�onofsuccessfulpartnersh�ps.Iffus�oncentersaretaskedw�thconduct�ngcr�t�cal�nfrastructureassessments,everyeffortshouldbemadetoprotecttheresultsoftheseassessments.Th�s�nformat�on�ssens�t�veandmustnotbereleased to nonauthorized personnel. Center management shouldbeawareoflocal,state,andfederallawsregard�ngthestor�ngandreleaseofth�s�nformat�on.

The DHS Office of Preparedness and Office of Intelligence andAnalys�s(OPOIA)helpsdeter,prevent,andm�t�gateconsequences in “all-hazard” environments, assessing threats, explo�tablevulnerab�l�t�es,andconsequences.DevelopedasaresultoftheCr�t�calInfrastructureInformat�onAct,theOPOIAcana�dcentersw�thassessments,r�skanalys�s,andcomp�lat�onsofcr�t�cal�nfrastructureassets.More�nformat�onregard�ngtheseprogramscanbev�ewedatwww.dhs.gov.


DHS’sNationalResponsePlan,December2004TerrorismProtectionManual,FDLE,February28,2003


Guideline 15Develop, publish, and adhere to a policies and procedures manual.

Policies and Procedures JustificationFusion centers should use a formalized policies and procedures manual.Acomprehens�vemanualoffersanumberofadvantages.57Itdemonstratesthatthecenterhasprov�dedd�rect�onto�tsemployeesandthatpersonnelfollowapprovedprocedures�ncarry�ngoutthe�rdut�es.Inadd�t�on,pol�c�esandprocedures�nd�catethatthegovern�ngbodyhasbeenproact�ve�nplann�ng,�nsteadofreact�veorwa�t�ngunt�lan�nc�dentoccurstowr�tepol�cy.Thepol�c�esandproceduresmanual�sthefoundat�onforcommun�cat�onsw�th�nthecenterandamongpersonnel.Bydevelop�ng,publ�sh�ng,andadher�ngtoapol�c�esandproceduresmanual,theexpectat�onsforpersonnelareoutl�ned,creat�ngcons�stencyandaccountab�l�tywh�lereduc�ngl�ab�l�tyandenhanc�ngoverallprofess�onal�sm.Apol�c�esandproceduresmanualalsoservesasacentralrepos�toryforallcenterd�rect�ves.It�s�mportantforpersonneltoeas�lylocatethecenter’smostrecentprocedures.

Issues for ConsiderationWhendes�gn�ngapol�c�esandproceduresmanual,cons�der:58

Outl�n�ngtherolesandrespons�b�l�t�esofallpart�es�nvolved.Includ�nglanguagethat�nformat�onshouldonlybeusedforcr�m�nal�nvest�gat�ons.Includ�ngthecenter’sm�ss�on,goals,object�ves,pol�c�es,procedures,rules,andregulat�ons.Ta�lor�ngthemanualtomeettheneedsofthecenter.Ensur�ngpersonnelhaveeasyaccesstothemanual.Prov�d�ngemployeesacopyofthemanualand/orprov�d�nganonl�nemanual.Using a standardized format to allow for easy reading, filing, retr�ev�ng,andcorrect�ng.

57 M�chaelCarpenter,M.A.,M.A.T.,“PutIt�nWr�t�ng:ThePol�cePol�cyManual,”FBILawEnforcementBulletin,Vol.69,No.10,October2000.58 Ib�d.

Implement�nganannualrev�ewofcenterd�rect�vesandpurg�ngorrev�s�ngoutdatedpol�c�esandprocedures.Establ�sh�ngacontractor’scodeofconduct.C�t�ngofthepol�cyandproceduresmanual�ntheMemorandumofUnderstand�ng(MOU)andNon-D�sclosureAgreement(NDA)(Gu�del�ne5).Outl�n�nghowandfromwhom�ntell�gencerequ�rementsaredeterm�ned;e.g.,thepr�vatesectorhas�ntell�gencerequ�rementsforprotect�onof�tsfac�l�t�es.Ensur�ngunderstand�ngofandcompl�ancew�thlocalandstate confidentiality laws and how to appropriately safeguard data.C�t�ngpr�vacypol�c�es(local,state,andfederal),�nclud�ngtheseparat�onof�nformat�on,toensureunderstand�ngofandcompl�ancew�ththepr�vacygu�del�ne.

Suggested Policies and ProceduresBeg�nby�dent�fy�ngex�st�nggu�del�nes,statutes,pol�c�es,andproceduresthataffectcenteroperat�onsandensureadherencetoregulat�ons,suchas28CFRPart23andtheCr�t�calInfrastructureInformat�onAct.Personnelshouldbetra�nedonandunderstandallcenterprocessesandpol�c�esandprocedures


andadheretothematallt�mes.Areasthatmayrequ�repol�c�esandprocedures�nclude:

Intell�genceprocess(seeGu�del�ne1,NCISP).Intell�gencecollect�onrequ�rements.Secur�tyfordata,fac�l�ty,personnel,andsystems(formore�nformat�on,seeSecur�ty(Gu�del�ne9);Fac�l�ty,Locat�on,andPhys�calInfrastructure(Gu�del�ne10);andHumanResources(Gu�del�ne11).Commun�cat�ons(formore�nformat�on,seeInterconnect�v�ty[Gu�del�ne7]).Pr�vacy(formore�nformat�on,seeGu�del�ne8,Pr�vacyandC�v�lL�bert�es).Accountab�l�tyandrev�ew.Sanct�onsandv�olat�onsofpol�c�esandprocedures.

28 CFR Part 23Agenc�esthatusefederalfundstosetuporma�nta�nacr�m�nal�ntell�gencedatabase(andshare�nformat�onbetweenjur�sd�ct�ons)mayneedtocomplyw�ththeregulat�onsof28CFRPart23.Theregulat�onsrequ�reagenc�estohavepol�c�esandprocedures�nplaceregard�ng�ntell�genceoperat�ons.Thespecifics of the policies are left to the individual agencies. A copy ofth�sregulat�on�s�ncludedontheaccompany�ngresourceCD.Add�t�onal�nformat�onmayalsobefoundatwww.��r.com/28cfr.

Inadd�t�ontotheregulat�onsof28CFRPart23,theNationalCriminalInformationSharingPlan (NCISP) also recognizes thefollow�ngdocumentsandgu�del�nesforcreat�ngand�mplement�ngapol�c�esandproceduresmanual:theLawEnforcementIntelligenceUnit(LEIU)CriminalIntelligenceFileGuidelinesandtheJusticeInformationPrivacyGuideline.


28CFRPart23,www.��r.com/28cfr/Overv�ew.htmEvaluationChecklistsforIntelligenceUnits,PaulR.RogerIACP’sCriminalIntelligenceModelPolicyLawEnforcementIntell�genceUn�t’s(LEIU)CriminalIntelligenceFileGuidelines,http://�t.ojp.gov/documents/LEIU_Cr�m_Intell_F�le_Gu�del�nes.pdfJusticeInformationPrivacyGuideline,www.ncja.org/pdf/pr�vacygu�del�ne.pdfPrivacyPolicyDevelopmentGuide,http://�t.ojp.gov/documents/Pr�vacy_Gu�de_F�nal.pdf


Guideline 16Define expectations, measure performance, and determine effectiveness.

Center Performance Measurement and EvaluationJustificationIt�s�mportanttohaveaprocessthatsystemat�callyrev�ewsperformance.Performancemeasurementrev�ew�scr�t�callyimportant to the health of an organization. The review must accurately reflect existing performance and operate to initiate �mprovement.Rev�ew�nganent�ty’sobject�ves�srequ�redtoensure�ntegr�tyofthemeasurementprocessandtojust�fycontinued investment in the organization or project. An effective and verifiable performance measurement-and-review process canaddresstheseconcerns.Theperformancemeasuresaddressedunderth�sstandardrefertothecenter’sperformance,notthoseofan�nd�v�dual.Personnel�ssuesareaddressedunderGu�del�ne11,HumanResources.

Duetotheun�questructureoffus�oncenters,trad�t�onallawenforcementperformancemeasuresmaynotadequatelygaugecenterperformance.Performancemeasuresshouldbedes�gnedbasedonthecenter’scorem�ss�on,goals,andobject�vesandshould reflect services generated from all areas of the center. It �salso�mportanttonotethatperformancemeasuresandfund�ngareoftenrelated.Managementshouldcons�derth�srelat�onsh�pwhendevelop�ngmeasuresandrev�ew�ng/subm�tt�ngfund�ngrequests.Performancemeasuresofferquant�tat�veval�dat�onformanagementandpol�cymakersregard�ngtheeffect�venessofthefus�oncenter.Furthermore,performancemeasuresmaydemonstratetolawenforcement,publ�csafety,andthepr�vatesectortheeffect�venessofhous�ngamult�d�sc�pl�nary�ntell�gencefunct�on�nonelocat�on,wh�chmayresult�ncont�nuedfund�ngforthecenter.

Centersm�ghtalsocons�derdevelop�nganevaluat�onprocess,wh�chd�ffersfromperformancemeasurement.Performancemeasuresassesscenterserv�cesandaccompl�shmentof�tsmission. Evaluation, on the other hand, reflects judgments regard�ngtheadequacy,appropr�ateness,andsuccessofapart�cularserv�ceoract�v�ty.59Inotherwords,performance

59 CharlesR.McClure,PerformanceMeasures,SchoolofInformat�onStud�es,SyracuseUn�vers�ty,1996.

measuresfocusonthe“what”wh�leevaluat�onfocusesonthe“why.”

Issues for ConsiderationWhenestabl�sh�ngperformancemeasuresandevaluat�ngeffect�veness,cons�der:

Defining the expected performance.Develop�ngoutputsandoutcomesthatmeasuretheexpectedperformance.Coord�nat�ngthedevelopmentandrev�ewofmeasuresandperformancew�thpart�c�pat�ngagenc�es.Developing meaningful relevant and quantifiable measures.Creat�ngmeasuresthatarebasedonval�dandrel�abledata.

Val�d�ty—askthequest�on:“Doesthe�nformat�onactuallyrepresentwhatwebel�eve�trepresents?”Rel�ab�l�ty—askthequest�on:“Isthesourceofthe�nformat�oncons�stentanddependable?”

Creat�ngboth�nternalandexternalmeasureswhere�nternalmeasuresperta�ntoadm�n�strat�vepurposes.Establ�sh�ngreasonablestandardsandtargets.Leverag�ngwh�chsystemsanddatabasesstat�st�callycapturedata.Utilizing automation to capture, store, and report performance.Report�ngandrev�ew�ngonperformanceregularly(�.e.,boardormanagers’meet�ngs)andadjust�ngoperat�ons,asappropr�ate.Publicizing performance to the public, policymakers, and customers.Creat�ngaccountab�l�tyanddeterr�ngtheconsequencesfornotmeet�ngtargets.Survey�ngcustomers.Integrat�ngfeedbackandsuggest�ons�ntofus�oncenteroperat�ons.Develop�ngastrateg�cplantogu�deoperat�ons.


Cont�nuallyevaluat�ngperformancemeasurestoextendbeyondthecr�m�naljust�ce�nformat�onshar�ngenv�ronment,to�ncludepubl�csafetyandthepr�vatesector.L�a�s�ngw�ththeU.S.DepartmentofHomelandSecur�ty(DHS), Office of State and Local Government Coordination andPreparedness,regard�ngtheTargetCapab�l�t�esL�st.

Elements of Good Performance MeasuresGenerallyacceptedgu�del�nesfordevelop�ngperformancemeasures�nclude:

Using standard terms and definitions.Gaug�ngprogresstowardsagencygoalsandbenchmarksorotherh�gh-leveloutcomes.Focus�ngonkey�ssues.Hav�ngreasonabletargets.Bas�ngonaccurateandrel�abledata.Be�ngeas�lyunderstoodandmeasur�ngperformance�nas�nglearea.Be�ngt�mely.L�m�t�ngsubject�v�ty—be�ngobject�ve.

Using Performance MeasuresOnceperformancemeasuresaredeveloped,basel�nedataw�llneed to be obtained during the first year of operation. Baseline dataass�stsmanagers�ndeterm�n�ngthestandardsforfutureyears. Measures should reflect center goals and be quantifiable. Standardsshouldbechalleng�ngtoach�evebutalsoreal�st�c.Managementshouldrev�ewperformanceregularlyand�nformcenterpersonnelofprogress.Bykeep�ngemployees�nformedand�nvolv�ngthem�ntheperformance-measureprocess,theyw�llbemot�vatedtoworkcollect�v�tytoreachtargetedgoals.Performancemeasurescanbet�edtofund�ngandresourcerequests and have a significant impact on support and future endeavors.


Office of Management and Budget, www.omb.govTargetCapab�l�t�esL�st,Vers�on1.1,www.ojp.usdoj.gov/odp/docs/TCL1_1.pdf


Guideline 17Establish and maintain the center based on funding availability and sustainability.

Funding JustificationFund�ng�scr�t�caltoestabl�sh�ngfus�oncenters,d�rectly�mpact�ngacenter’slongev�tyandab�l�tytoeffect�velyandefficiently operate. Often, new initiatives receive start-up funds throughgovernmentprogramsand/orgrants.Th�sseedmoney�sanexcellentmeansofbeg�nn�ngnewprojectsorprograms.Unfortunately,someeffortsendbecause�n�t�alfund�nghasbeenspent and no additional funding was identified or obtained to cont�nuetheproject.Forthelongterm,�t�sessent�althatcenterstakerespons�b�l�tyforfund�ngtoensuresusta�nab�l�ty.Fus�oncentersthathavebeensurveyedregard�ngthe�rongo�ngneedsrepeatedlyc�tefund�ngasapr�or�ty�nthedevelopmentandsusta�nmentofthecenter.60It�srecommendedthatmanagement�dent�fytheneedsofthecenterand�dent�fyava�lablefund�ngsourcesfromlocal,state,federal,andnongovernmentalsources.

Fus�oncenterleadersh�pshouldseektol�nktheperformanceofthecentertofund�ng.Asseedmoneyends,performancemeasuresmaybeaneffect�vetoolforfus�oncenterstouse�nsecuring funding. Performance measures that cover notifications and�ntell�genceserv�cesandproductsdemonstratethesuccessandreturnon�nvestmentofafus�oncenter.

Issues for ConsiderationWhenrev�ew�ngfund�ngneedsandsources,cons�der:

Bas�ngfund�ngoncenterpr�or�t�es.Leverag�ngex�st�ngresources/fund�ngfrompart�c�pat�ngent�t�es.Ensur�ngresourcecomm�tmentofpart�c�pat�ngent�t�es�saddressed�ntheMemorandumofUnderstand�ng(MOU).Identifying supplemental funding sources (i.e., seized assets/forfe�tures,localandstategovernmentappropr�at�ons,stateandfederalgrants,andpr�vatesources).Establ�sh�nganoperat�onalbudget.

60 NGA,CenterforBestPract�ces,“StateIntell�genceFus�onCenters:RecentStateAct�ons,”2005.

Adher�ngtoreport�ngrequ�rements(�.e.,annualreport).Ensur�ngfus�oncentersusta�nab�l�ty.Ident�fy�ngreturnon�nvestmentforfus�oncenterpartners(e.g., defining what partners will receive as a result of part�c�pat�on).

Center ExpensesToeffect�velyoperateafus�oncenter,anumberofcostelementsmust be identified and addressed in a budget. Some of these expensescanbesharedamongpart�c�pat�ngagenc�es.Thefollow�ng�sasamplel�stofbudgetaryexpensesthatw�llrequ�refund�ng:

SalaryVeh�clesEqu�pmentSuppl�es/commod�t�esFac�l�tyFurn�sh�ngsInformat�ontechnologysupportCommun�cat�onequ�pmentTra�n�ngTravelContractual(cop�er,del�very)Pr�nt�ngPhys�calsecur�ty(personnel,sensors,spec�alroomsforfederally classified information, and related systems)Communications (high-bandwidth, federally classified �nformat�on)


SummaryofFund�ngResourcesThe U.S. Government’s Official Web Portal, www.firstgov.gov



Communications PlanJustificationCommun�cat�on�sessent�altofus�oncenteroperat�ons.Fus�oncenterleadersh�pmustbeabletocommun�catew�thcenterpersonnelandrepresentat�ves,shouldtheneedar�se.W�ththe�nclus�onofpubl�csafetyandpr�vatesectorpartners,commun�cat�onneedsbecomecomplex.Publ�csafetyandpr�vatesectorent�t�esmaynotalwaysbepresent�nthefus�oncenterda�lyact�v�t�esbutarekeypartners�n�tsoperat�on.W�thavar�etyofcommun�cat�onopt�ons,centersshoulddeveloplevelsofcommun�cat�on,backupcommun�cat�onprocedures,andemergencycontactprotocols.S�nceSeptember11,therehasbeenafocuson�nteroperab�l�tyw�th�nthelawenforcement community and among first responders (e.g., fire andEMS).It�s�mportanttohave�nteroperab�l�tybetweenfus�oncenterrepresentat�ves.Ifcommun�cat�onssystemsarenot�nteroperable,theeffortw�llbefut�le.Thegeneralpubl�c�salsoan�ntegralpartofthecommun�cat�onsplan.Theymayreport�nformat�onandeventstothefus�oncenter,and�ntheeventofaterror�stattackorcr�me�nc�dent,thepubl�cmustbekept�nformedofthes�tuat�on.

Var�oustypesofcommun�cat�on�nclude:

E-ma�lElectronic notification to pagers and cell phonesHardl�netelephoneSecuredl�netelephoneSatell�tetelephoneFaxmach�neV�deoteleconferenc�ngHandheldrad�oPassword-protectedWebpageforpost�ng�nformat�onFace-to-faceAlert notification systemsW�-F�Meshnetworks

Personnelandpartnersw�th�nthefus�oncentershouldbeawareofthed�fferenttypesof�nformat�onthatmaybecommun�catedw�th�nthefus�oncenter,�nclud�ngpubl�c,sens�t�ve,propr�etary,and secret. These different classification types should determine howfus�oncentersshare�nformat�on.Fus�oncenterpersonnelshould have a clear understanding of what the classifications are andhowtheyapplyto�nformat�onshar�ng.

Whenfus�oncentersdevelopacommun�cat�onsplan,leadersh�pshouldant�c�patethat�ntheeventofaterror�stattackorlarge-scaleemergency,phonel�nesw�llqu�cklybet�edupord�sabledandphoneserv�celost;therefore,alternatecommun�cat�onmeansshouldbe�ncluded�nthecommun�cat�onsplan.Forexample,�flandl�neandallphonevo�cec�rcu�tsarejammed,theuseoftextmessag�ngmaybeav�ableopt�on.S�m�larly,�fpower�sava�lableandvo�cec�rcu�tsarejammed,Internetmessag�ngcan be utilized. The communications plan should also include personnelrecallproceduresand,forthoseent�t�esthatdonotsupplyafull-t�memembertothefus�oncenters,l�a�soncall-outprocedures.

Fusion centers should identify a public information officer (PIO) toa�d�nthecoord�nat�onofpubl�candmed�a�nqu�r�es�ntothefus�oncenter.Intheeventofad�saster(man-madeornatural),aPIOw�lla�d�nensur�ngthatfus�oncenterstaffarenoth�nderedfromconduct�ngthe�rdut�esandred�rectedtoanswer�ngmed�aquer�es.APIOmayalsoperform�naproact�veawarenesscapac�ty,�nform�ngthemed�aandthepubl�cofongo�ngoperat�onsandsuccessstor�esw�th�nthefus�oncenter.

Issues for ConsiderationWhen�dent�fy�ngcommun�cat�onsneeds,cons�der:

Determ�n�nghowfus�oncentercomponentsw�llcommun�catedur�ngad�saster.Ident�fy�nganalternat�vepowersourceforcommun�cat�onswhentrad�t�onalut�l�t�esareunava�lable.Creat�ngat�ersystemforcommun�cat�onsbasedonthreatlevel.Ensur�ngtheex�st�ngcommun�cat�oncapab�l�t�esbetweencomponentsandent�t�esare�nteroperable.

Guideline 18Develop and implement a communications plan within the fusion center; among all involved law enforcement, public safety, and private sector agencies and entities; and with the general public.


Ensur�ngthatallent�t�eshaveappropr�atecommun�cat�ontools(e.g.,v�deo-teleconferenc�ngequ�pment,pagers,orcellphonesw�thtext-messag�ngcapab�l�t�es).Incorporating current communications plans that are utilized bylawenforcementandemergencyserv�ces(�nclud�nghospitals, EMS, and fire).Obta�n�ngacacheofrad�osforfus�oncenterpersonneltouse�nemergencys�tuat�ons.Ifthecommun�cat�onsplan�ncludesrad�ocommun�cat�on,meet�ngw�thlawenforcementto�dent�fyafus�oncenterrad�ochannel(e.g.,spec�aleventschannelorspec�aloperat�onschannel).Sett�ngas�deaphonel�neonlyaccess�bletofus�oncenterpersonnelandpartner�ngent�t�esforemergencycommun�cat�ons.

Includ�ngasect�onthataddressestest�ngtheplantoensureoperab�l�tyandma�ntenanceofcurrentcontact�nformat�onforfus�oncenterpart�c�pants.Creat�ngredundancy�nthecommun�cat�onsplan.Inadvanceofanemergency,consult�ngw�ththelocaltelephoneprov�deraboutava�lablebackupandalternat�vecommun�cat�onsopt�onsforthefus�oncenter,�nclud�ngmob�lecellulars�tes.Equ�pp�ngthecenterw�thasatell�tephonetoensurecommun�cat�onbeyondthelocalrad�onetwhen,�nanemergency,standardconnect�v�ty�slost.


StateandLocalGuide(SLG)101:GuideforAll-HazardEmergencyOperationsPlanning,Chapter4,http://www.fema.gov/pdf/plan/4-ch.pdf


Next Steps

Fusion centers should strive to institutionalize the relationships establ�shedw�th�tslawenforcement,publ�csafety,andpr�vatesectorpartners.It�sthroughtheserelat�onsh�psthatthecenterw�llbetrulyeffect�ve�ntheprevent�onanddeterrenceofcr�meand terrorism. As relationships are institutionalized, mistrust andfearof�nformat�ond�sclosurew�lld�m�n�shandeffect�veandefficient information and intelligence sharing will be seamless. Furthermore,�ntheeventofad�sasterormajorcr�me�nc�dent,theserelat�onsh�psw�llbev�tal�nsuccessfully�nvest�gat�ngthecr�meorgett�ngessent�alserv�cesbackonl�ne.Inorderforthe relationships within the fusion center to be institutionalized, fus�oncentergovernanceshouldhaveongo�ngd�aloguew�thpubl�candpr�vatesectorleadersh�pandagencyheads.Fus�oncentersshouldbecome�nvolved�nex�st�ng�ndustrynetworks

and organizations, such as credit card fraud networks. Through theseestabl�shednetworks,fus�oncenterscandemonstrateeffect�veness�nus�ngthe�ntell�genceandfus�onprocesses.

Tra�n�ngmustalsooccurbetweencenterpersonnelandthe�rpubl�candpr�vatepartnersforsuccessful�ntegrat�on.Th�stra�n�ng�ncludesawarenessofthe�ntell�genceandfus�onprocesses,thetypesof�nformat�onand�ntell�gencecruc�altocr�meprevent�on,thefunct�onofthefus�oncenterandhow�toperates,andanunderstand�ngofthetypesof�nformat�onthatthepubl�candpr�vatesectorent�t�escanprov�detothecenter.Fus�oncentertra�n�ngshouldalso�ncludejo�nttabletop,funct�onal,andfull-scaleexerc�sesw�thlawenforcement,publ�csafety,andpr�vatesectorpartners.Theseexerc�sesw�lla�d


�n�dent�fy�ngtheroleandthe�nformat�onrequ�rementsofboththefus�oncenterandthecomponentsandw�llalsotestthecommun�cat�onsplan.

Fus�oncentersrepresentacapab�l�tyforlawenforcement,publ�csafety,andpr�vatesectorent�t�estosecurelydevelopandshare�nformat�onand�ntell�gence�nan�nnovat�ve,effect�ve,and efficient manner. Many of the issues impacting fusion centers have been addressed in this report, specifically those affect�ngthe�r�ntell�gencefunct�on.Unden�ably,ascentersareestabl�shed,add�t�onal�ssuesw�llar�se,bestpract�cesw�llemerge, and future needs will be identified. This document is notmeanttobeall�nclus�ve;�nstead,therecommendat�onsconta�nedhere�narethefoundat�onforamuchlargerandcomplexenterpr�se.Asth�sprocesscont�nues,themembersofthethreefocusgroupsrema�ncomm�ttedtoshar�ng�nformat�onaboutfus�oncenterdevelopment,operat�ons,andserv�cesw�thalllevelsoflawenforcement.Furtherdevelopmentsandmaterials will be provided on the Office of Justice Programs (OJP)Webs�teatwww.�t.ojp.gov.

Asrecommended�nth�sreport,fus�oncentersshouldbeestabl�shed�nallstatestoallowforthemax�mumcapab�l�tyof�ntell�genceand�nformat�onexchange.Althoughthesegu�del�nesarenotmeanttobemandatory,focusgroupmembersurgefund�ngagenc�esandotherstopromoteandadheretothesem�n�mumgu�del�nes.

Mov�ngfromareact�veresponseapproachtoaproact�veandprevent�veapproachw�ll�mprovelawenforcement’sab�l�tytodetectandpreventcr�meandpubl�csafetypersonnel’scapab�l�tytorespondtoemergenc�es.Thefus�oncenterconcept�sanopportun�tytobr�ngtogethercr�t�calresourcesandproducemean�ngful�nformat�onand�ntell�genceford�ssem�nat�ontother�ghtpeopleatther�ghtt�meforther�ghtreasons.Throughcollect�veandcollaborat�ve�mplementat�on,thecenter,�tspersonnel, and the citizens the center serves will benefit.

A key benefit of fusion centers is minimizing duplication. The U.S.DepartmentofHomelandSecur�ty(DHS),theU.S.Department of Justice (DOJ), and the states must be cognizant ofex�st�ngfus�oncentersandthosecurrentlyunderdevelopment(�nclud�ngtheUrbanAreaSecur�tyIn�t�at�ve[UASI]reg�ons)andleverageandenhancethecentersthatcurrentlyex�st.

D�str�but�onoftheFusionCenterGuidelines:LawEnforcementIntelligence,PublicSafety,andthePrivateSector�s�mportantforthemax�mumeffect�venessoffus�oncenters.It�srecommendedthatDOJandDHSspearheadeffortstoensurethatthegu�del�nesared�str�butedtoallkeycomponentsandent�t�esoffus�oncenters,�nclud�nglawenforcement,publ�csafety,andpr�vatesectorent�t�es.

Fusion Center Guidelines—Developing and Sharing Information in a New Era A-1

Law Enforcement Intelligence Fusion Center Focus Group Participants

NormBeasley,LieutenantColonelArizona Counter Terrorism Information

Center

KennethA.Bouche,ColonelIll�no�sStatePol�ce

RogerBragdon,ChiefSpokane,Wash�ngton,Pol�ceDepartment

DavidCarter,Ph.D.M�ch�ganStateUn�vers�ty

StephenClarkGeorg�aEmergencyManagementAgency

DanielCooney,CaptainUpstateNewYorkReg�onalIntell�gence

Center

C.PatrickDuecyCPDConsultants,LLC

JohnT.ElliffFederalBureauofInvest�gat�on

DennisEllis,LieutenantInd�anaStatePol�ce

WilliamFennell,ProgramManagerU.S.DrugEnforcementAdm�n�strat�on

MaxFratoddiCounterdrugIntell�genceExecut�ve

Secretar�at

BobHardin,InspectorGeorg�aBureauofInvest�gat�on

ChrisHolmes,DeputyProgramManagerManTechInformat�onSystemsand

TechnologyU.S.DepartmentofHomelandSecur�ty

CliffKarchmer,DirectorPol�ceExecut�veResearchForum

ClarkKimerer,DeputyChiefSeattle,Wash�ngton,Pol�ceDepartment

MarkMarshall,ChiefSmithfield, Virginia, Police Department

JerryMarynik,AdministratorStateTerror�smThreatAssessment

CenterCal�forn�aDepartmentofJust�ce

Mary Meyer, OfficerM�nnesotaDepartmentofPubl�cSafety

PeterA.Modafferi,ChiefRocklandCounty,NewYork,D�str�ct

Attorney’s Office

DougPoole,ActingChiefU.S.DrugEnforcementAdm�n�strat�on

RussPorter,ChiefIowaDepartmentofPubl�cSafety

DonRobertsonGeorg�aBureauofInvest�gat�on

RichardA.Russell,DirectorU.S.DepartmentofHomelandSecur�ty

Appendix AFocus Group Participants and Acknowledgements

KurtSchmid,SeniorAdvisorOffice of National Drug Control Policy

ClarkSmith,SeniorInformationTechnologySpecialistU.S.DepartmentofJust�ce

MikeSnyders,LieutenantColonelIll�no�sStatePol�ce

NicholasTheodos,MajorNewJerseyStatePol�ce

MarkZadra,ChiefofInvestigationsFlor�daDepartmentofLawEnforcement

A-2 Fusion Center Guidelines—Developing and Sharing Information in a New Era

Public Safety Fusion Center Focus Group Participants

RichardAndrews,SeniorDirectorNat�onalCenterforCr�sesandCont�nu�ty

Coord�nat�on

Robert Belfiore, ChiefPortAuthor�tyofNewYorkandNew

Jersey

GreaBevis,BureauChiefFlor�daDepartmentofEnv�ronmental

Protect�on


MichaelCaldwell,M.D.,M.P.H.Nat�onalAssoc�at�onofCountyandC�ty

Health OfficialsDutchessCounty,NewYork,Health

Department

JohnCohen,PolicyAdvisorMassachusetts Executive Office of Public

Safety

ThomasFrazier,ExecutiveDirectorMajorC�t�esCh�efsAssoc�at�on

DonnaHunsaker,Ph.D.KentuckyMed�calExam�ner

JohnHunt,MajorNewJerseyStatePol�ce

BartR.Johnson,ColonelNewYorkStatePol�ce

ArtJohnstone,DirectorFlor�daDepartmentofAgr�cultureand

ConsumerServ�ces

ClarkKimerer,DeputyChiefSeattle,Wash�ngton,Pol�ceDepartment

FredLaMontagne,ChiefPortland,Ma�ne,F�reDepartment

PeterA.Modafferi,ChiefRocklandCounty,NewYork,D�str�ct

Attorney’s Office

ThomasJ.O’Reilly,AdministratorNew Jersey Office of the Attorney General

JosephM.Polisar,ChiefGardenGrove,Cal�forn�a,Pol�ce

Department

ThomasJ.Richardson,CaptainSeattle,Wash�ngton,F�reDepartment

MarkZadra,ChiefofInvestigationsFlor�daDepartmentofLawEnforcement

Private Sector Fusion Center Focus Group Participants

RichardAndrews,SeniorDirectorNat�onalCenterforCr�sesandCont�nu�ty

Coord�nat�on

DrewArena,AssistantGeneralCounselforLegalComplianceVerizon Communications

RoyBarnes,ManagerGeneralMotorsCorporat�on

EarnestA.Blackwelder,SeniorVicePresidentBus�nessExecut�veforNat�onalSecur�ty


JohnCohen,SeniorAdvisorMassachusetts Executive Office of Public

Safety

MichaelCohen,DeputyRegionalDirectorC�t�groupSecur�tyandInvest�gat�ve

Serv�ces

JackFaer,PresidentF�del�tyInvestments

ShawnaFrench-LindWal-MartStores,Inc.

BartR.Johnson,ColonelNewYorkStatePol�ce

ArtJohnstone,DirectorFlor�daDepartmentofAgr�cultureand

ConsumerServ�ces

LynneD.Kidder,VicePresidentBus�nessExecut�vesforNat�onalSecur�ty

MauriceMcBride,SecretaryandAttorneyNational Petrochemical and Refiners

Assoc�at�on

KathleenMcChesney,VicePresidentTheWaltD�sneyWorldCompany

FreemanMendell,FirstAssistantInformat�onTechnologySystems

LaurenceMulcrone,DirectorofSecurityandSafetyMcCorm�ckPlace/NavyP�er

ColinNurse,NationalTechnologyOfficer, State and Local GovernmentM�crosoftCorporat�on

ThomasJ.O’Reilly,AdministratorNew Jersey Office of the Attorney General

RussellPorter,AssistantDirectorIowaDepartmentofPubl�cSafety

DanielRattner,PrincipalD.M.RattnerandAssoc�ates

RichardRyan,AssistantDeputyDirector,CorporateSecurityArcherDan�elsM�dlandCompany

DanSauvageau,VicePresidentF�del�tyInvestments

ThomasSeamon,ChairPr�vateSectorL�a�sonComm�ttee

Cha�rmanInternat�onalAssoc�at�onofCh�efsof

Pol�ce

Fusion Center Guidelines—Developing and Sharing Information in a New Era A-3

Acknowledgements

RobertG.Beecher,PrivateSectorLiaisonU.S.DepartmentofHomelandSecur�ty

DaronBorst,SupervisorySpecialAgentFederalBureauofInvest�gat�on

TomBrozycki,InvestigatorUpstateNewYorkReg�onalIntell�gence

Center

HyukByun,ProgramExecutive,CommunicationsandInformationTechnologyNat�onalInst�tuteofJust�ce

Scott Charbo, Chief Information OfficerU.S.DepartmentofHomelandSecur�ty

DavidClopton,Ph.D.Nat�onalInst�tuteofJust�ce

R.ScottCrabtree,SectionChiefFederalBureauofInvest�gat�on

HarveyEisenberg,CoordinatorAnt�-Terror�smAdv�soryCounc�lof

Maryland

RichardT.Garcia,RegionalSecurityAdvisorShellInternat�onal

DonaldJ.Good,UnitChiefFederalBureauofInvest�gat�on

BobGreeves,PolicyAdvisorU.S.DepartmentofJust�ce

CoreyGruber,DirectorU.S.DepartmentofHomelandSecur�ty

JulieHamiltonDFIGovernmentServ�ces

KellyHarris,DeputyExecutiveDirectorSEARCH,TheNat�onalConsort�umfor

Just�ceInformat�onandStat�st�cs

RonaldP.Hawley,ExecutiveDirectorSEARCH,TheNat�onalConsort�umfor

Just�ceInformat�onandStat�st�cs

MatthewJack,SupervisorySpecialAgentU.S.DepartmentofHomelandSecur�ty

RichardKelly,DirectorNewJerseyStatePol�ce

JosephEricKennedy,DeputyDirectorLiaisonU.S.DepartmentofHomelandSecur�ty

HarriJ.KramerU.S.DepartmentofHomelandSecur�ty

ErinLee,SeniorPolicyAnalystNat�onalGovernorsAssoc�at�on,Center

forBestPract�ces

ChristopherLogan,SeniorPolicyAnalystNat�onalGovernorsAssoc�at�on,Center

forBestPract�ces

GeorgeMarenicU.S.DepartmentofHomelandSecur�ty

ErikMillerFederalBureauofInvest�gat�on

JohnMillicanNewJerseyStatePol�ce

JohnMorgan,Ph.D.,AssistantDirectorforScienceandTechnologyNat�onalInst�tuteofJust�ce

RodneyA.Morgan,Jr.,UnitChiefFederalBureauofInvest�gat�on

BradyK.O’Hanlon,ProgramManagerU.S.DepartmentofHomelandSecur�ty

DianePitts,IntelligenceAnalystU.S.DepartmentofHomelandSecur�ty

RichardRandall,SheriffKendall County, Illinois, Sheriff’s Office

SueReingold,AssociateDirectorU.S.DepartmentofHomelandSecur�ty

Robert Riegle, Executive OfficerU.S.DepartmentofHomelandSecur�ty

DiegoRodriquez,UnitChiefFederalBureauofInvest�gat�on

JeffreySands,SpecialAdvisorU.S.DepartmentofHomelandSecur�ty

LaneB.Scheiber,Ph.D.Inst�tuteforDefenseAnalyses

DennisSchrader,DirectorMaryland Governor’s Office of Homeland

Secur�ty

KellyTapp,CommunicationsManagerU.S.DepartmentofJust�ce

KarenWatermanU.S.DepartmentofHomelandSecur�ty

ColleenWilsonU.S.DepartmentofHomelandSecur�ty

A-4 Fusion Center Guidelines—Developing and Sharing Information in a New Era

Fusion Center Guidelines—Developing and Sharing Information in a New Era B-1

Guideline 1—The NCISP and the Intelligence and Fusion Processes

10S�mpleStepstohelpyouragencybecomeapartoftheNationalCriminalIntelligenceSharingPlanHSAC’sIntelligenceandInformationSharingInitiative:HomelandSecurityIntelligenceandInformationFusionreportLawEnforcementIntelligence:AGuideforState,Local,andTribalLawEnforcementLawEnforcementIntell�genceUn�t(LEIU)Aud�tCheckl�stNationalCriminalIntelligenceSharingPlanreport

Guideline 2—Mission Statement and Goals

AStaircasetoStrategicPlanning:Mission,TheCommun�tyPol�c�ngConsort�um,www.commun�typol�c�ng.org/m�ss�on.html

Guideline 3—Governance BylawsSampleTemplateBoardGu�del�nes,www.mapnp.org/l�brary/boards/boards.htmGlobalJust�ceInformat�onShar�ngIn�t�at�veAdv�soryComm�tteeBylaws,http://�t.ojp.gov/documents/GACBylaws.pdfOrganization and Association ResourceL�stParl�amentaryProcedures,www.rulesonl�ne.com

Guideline 4—Collaboration“Commun�tyCollaborat�on,”www.commun�tycollaborat�on.net

Guideline 5—Memorandum of Understanding (MOU) and Non-Disclosure Agreement (NDA)

28CFRPart23SampleMOUArizona Counter Terrorism Information CenterMOUCal�forn�aPubl�cRecordsExempt�onCanadaDepartmentofDefense(DOD)MOUGu�del�nesDHSNon-D�sclosureAgreement,www.fas.org/sgp/othergov/dhs-nda.pdfFlor�daStatute119.071FreedomofInformat�onAct,www.usdoj.gov/04fo�aJo�ntTerror�smTaskForceMOUMassachusettsStatuteMOUSampleTemplateRocklandCountyIntell�genceCenterMOUUpstateNewYorkReg�onalIntell�genceCenterMOU

Guideline 6—Database Resources

ElPasoIntell�genceCenter(EPIC),www.usdoj.gov/dea/programs/ep�c.htmFBI’sLEOProgram,www.fb�.gov/hq/cj�sd/leo.htm

Appendix BFusion Center CD Resources

FBI’sN-DExProgramFBI’sR-DExProgramF�nanc�alCr�mesEnforcementNetwork(F�nCEN),www.fincen.govHigh Intensity Drug Trafficking Areas (HIDTA),www.wh�tehousedrugpol�cy.gov/h�dta/�ndex.htmlHomelandSecur�tyInformat�onNetwork(HSIN),www.dhs.gov/dhspubl�c/d�splay?content=3350Internat�onalAssoc�at�onofCr�meAnalysts(IACA),www.�aca.netInternat�onalAssoc�at�onofLawEnforcementIntell�genceAnalysts(IALEIA),www.�ale�a.orgInternat�onalCr�m�nalPol�ceOrganization (INTERPOL), www.usdoj.gov/usncbLawEnforcementIntell�genceUn�t(LEIU),www.le�u-homepage.org/�ndex.phpNat�onalCr�meInformat�onCenter(NCIC),www.fb�.gov/hq/cj�sd/nc�c.htmNat�onalDrugIntell�genceCenter(NDIC),www.usdoj.gov/nd�cNat�onalWh�teCollarCr�meCenter(NW3C),www.nw3c.organdwww.tra�n�ng.nw3c.orgNlets—TheInternat�onalJust�ceandPubl�cSafetyInformat�onShar�ngNetwork,www.nlets.orgRISSAutomatedTrustedInformat�onExchange(ATIX),www.r�ss�nfo.com/r�ssat�x.htmRISSNET™,www.r�ss�nfo.com

B-2 Fusion Center Guidelines—Developing and Sharing Information in a New Era

Guideline 7—InterconnectivityACriticalLookatCentralizedandDistributedStrategiesforLarge-ScaleJusticeInformationSharingApplications(awh�tepaperpreparedbytheIJISInst�tute)AFrameworkforJusticeInformationSharing:Service-OrientedArchitecture(SOA),http://�t.ojp.gov/documents/200409_Global_Infrastructure_Report.pdfGlobalJust�ceXMLDataModel(GlobalJXDM),www.�t.ojp.gov/gjxdmJust�ceInformat�onExchangeModel,www.search.org/programs/�nfo/j�em.aspModelIntell�genceDatabasePol�cy

Guideline 8—Privacy and Civil Liberties

Aud�tCheckl�st(LEIU),www.�t.ojp.gov/documents/LEIU_aud�t_checkl�st.pdfGlobal’sPrivacyandInformationQualityPolicyDevelopmentfortheJusticeDecisionMaker,http://�t.ojp.gov/documents/200411_global_pr�vacy_document.pdfNat�onalCr�m�nalJust�ceAssoc�at�on—JusticeInformationPrivacyGuideline,www.ncja.org/pdf/pr�vacygu�del�ne.pdfPrivacyandCivilRightsPolicyTemplatesforJusticeInformationSystemsPr�vacyPol�cySampleTemplatePrivacyPolicyDevelopmentGuide

Guideline 9—SecurityApplyingSecurityPracticestoJusticeInformationSharing,http://�t.ojp.gov/documents/asp/�ntroduct�on/�ndex.htmCr�t�calInfrastructureInformat�onActof2002,www.dhs.gov/�nterweb/assetl�brary/CII_Act.pdfNat�onalInst�tuteofStandardsandTechnology(NIST)templateandexamplepol�c�es,http://csrc.n�st.gov/faspSafeguarding Classified and Sensitive But Unclassified Information, ReferenceBookletforState,Local,Tribal,andPrivateSectorPrograms,U.S.DepartmentofHomelandSecur�ty,May2005

Guideline 10—Facility, Location, and Physical Infrastructure

Execut�veOrders12068,12958,and 13292 Regarding Classified Informat�onFBISecur�tyClearanceandFrequentlyAskedQuest�onsGSA’sFacilitiesStandardsforthePublicBuildingsServiceIACPPoliceFacilityPlanningGuidelines:ADeskReferenceforLawEnforcementExecutives,www.�acp.org/documents/pdfs/Publ�cat�ons/ACF2F3D%2EpdfNat�onalInst�tuteofStandardsandTechnology,“Cont�ngencyPlanTemplate,”http://csrc.n�st.gov/fasp/FASPDocs/cont�ngency-plan/cont�ngencyplan-template.doc

Guideline 11—Human Resources

LawEnforcementAnalyticStandards,http://�t.ojp.gov/documents/law_enforcement_analyt�c_standards.pdfPersonnelSampleCheckl�st

Guidelines 12 and 13—Training of Center Personnel/Multidisciplinary Awareness and Education

Counter-Terror�smTra�n�ngCoord�nat�onWork�ngGroup(CTTWG)Webs�te,www.counterterror�smtra�n�ng.govHSAC’sIntelligenceandInformationSharingInitiative:HomelandSecurityIntelligenceandInformationFusionreportHomelandSecur�tyPres�dent�alD�rect�ve5(HSPD-5),www.wh�tehouse.gov/news/releases/2003/02/20030228-9.htmlHomelandSecur�tyPres�dent�alD�rect�ve8(HSPD-8),www.fas.org/�rp/offdocs/nspd/hspd-8.htmlInternat�onalAssoc�at�onofLawEnforcementIntell�genceAnalysts(IALEIA),www.�ale�a.org/Internat�onalAssoc�at�onofD�rectorsofLawEnforcementStandardsandTra�n�ng(IADLEST),www.�adlest.org/

MinimumCriminalIntelligenceTrainingStandardsforUnitedStatesLawEnforcementandOtherCriminalJusticeAgencies,www.�t.ojp.gov/documents/m�n�mum_cr�m�nal_�ntel_tra�n�ng_standards.pdfNat�onalWh�teCollarCr�meCenter(NW3C),www.nw3c.org

Guideline 14—Intelligence Services and Products

DHS’sNationalResponsePlan,December2004TerrorismProtectionManual,FDLE,February28,2003

Guideline 15—Policies and Procedures

28CFRPart23,www.��r.com/28cfr/Overv�ew.htmEvaluationChecklistsforIntelligenceUnits,PaulR.RogerIACP’sCriminalIntelligenceModelPolicyLawEnforcementIntell�genceUn�t’s(LEIU)CriminalIntelligenceFileGuidelines,http://�t.ojp.gov/documents/LEIU_Cr�m_Intell_F�le_Gu�del�nes.pdfJusticeInformationPrivacyGuideline,www.ncja.org/pdf/pr�vacygu�del�ne.pdfPrivacyPolicyDevelopmentGuide,http://�t.ojp.gov/documents/Pr�vacy_Gu�de_F�nal.pdf

Guideline 16—Center Performance Measurement and Evaluation

Office of Management and Budget, www.omb.govTargetCapab�l�t�esL�st,Vers�on1.1,www.ojp.usdoj.gov/odp/docs/TCL1_1.pdf

Guideline 17—FundingSummaryofFund�ngResourcesThe U.S. Government’s Official Web Portal,www.firstgov.gov

Guideline 18—Communications Plan

StateandLocalGuide(SLG)101:GuideforAll-HazardEmergencyOperationsPlanning,Chapter4,http://www.fema.gov/pdf/plan/4-ch.pdf

Fusion Center Guidelines—Developing and Sharing Information in a New Era B-3

Organization Links CopNet,www.copnet.orgDefenseInformat�onSystemsAgency,www.d�sa.m�lFBITerror�smInformat�on,http://www.fb�.gov/terror�nfo/counterror�sm/waronterrorhome.htmlInternat�onalAssoc�at�onofCr�meAnalysts(IACA),www.�aca.netInternat�onalAssoc�at�onofLawEnforcementIntell�genceAnalysts(IALEIA),www.�ale�a.orgIntegratedJust�ceInformat�onSystemsInst�tute,www.�j�s.org

Nat�onalAssoc�at�onofCount�es,www.naco.orgNat�onalAssoc�at�onofStateCh�efInformation Officers, www.nasc�o.orgNat�onalGovernorsAssoc�at�on’sProjectonJust�ceInformat�onShar�ng,www.nga.orgOffice of Management and Budget, www.omb.govOffice of Justice Programs, U.S. DepartmentofJust�ce,www.�t.ojp.govReg�onalInformat�onShar�ngSystems®,www.r�ss�nfo.com

SEARCH,TheNat�onalConsort�umforJust�ceInformat�onandStat�st�cs,www.search.orgTerror�smResearchCenter,www.terror�sm.comU.S.DepartmentofDefenseNews,www.defendamer�ca.m�lU.S.DepartmentofHomelandSecur�ty,www.dhs.govU.S.DepartmentofJust�ce,www.just�ce.govU.S.DepartmentofState,www.state.gov/s/ct

B-4 Fusion Center Guidelines—Developing and Sharing Information in a New Era

Fusion Center Guidelines—Developing and Sharing Information in a New Era C-1

Appendix CFunctional Categories

Collaborat�onand�ntegrat�onarekeytothesuccessoffus�oncenters.ThePubl�cSafetyandPr�vateSectorFus�onCenterFocusGroups(FCFGs)developedoverarch�ngfunct�onalcategor�escomposedofthed�fferentent�t�esthatmakeupthesecomponents.Thecategor�esarenotcomprehens�vebutprov�deastart�ngpo�ntforfus�oncenters to utilize when integrating the d�fferentfacetsoflawenforcement,publ�csafety,andthepr�vatesector.Ind�v�dualfus�oncentersshould�dent�fythecr�t�calent�t�esw�th�nthe�rpart�cularjur�sd�ct�onto�ncorporate�ntothecenter.Thecategor�es�nclude:

Agr�culture,Food,Water,andtheEnv�ronmentBank�ngandF�nanceChemical Industry and Hazardous Mater�alsCr�m�nalJust�ceEducat�onEmergencyServ�ces(Non-LawEnforcement)EnergyGovernmentHealthandPubl�cHealthServ�cesHosp�tal�tyandLodg�ngInformat�onandTelecommun�cat�onsM�l�taryFac�l�t�esandDefenseIndustr�alBasePostalandSh�pp�ngPr�vateSecur�tyPubl�cWorksRealEstateReta�l

Soc�alServ�cesTransportat�on

Informat�onrece�vedfromthesecategor�esandassoc�atedent�t�esshouldbeusedforthreatandcr�meprevent�on.Appl�cablelocal,state,andfederallawsshouldbefollowedwhen�nformat�on�sprov�dedtofus�oncenters.Inadd�t�on,th�s�nformat�onmaybeusedforcr�m�nalinvestigations with an identified criminal pred�cate.

Agriculture, Food, Water, and the EnvironmentTh�scategory�scomposedofent�t�esthatfocusonthefoodandwatersupplycha�n,fromthera�s�ng/product�onoffoodandwatertothed�str�but�ontoconsumers.Ent�t�esw�th�nth�scategorycanprov�defus�oncentersw�thavar�etyofstrateg�candtact�cal�nformat�on.Itmay�ncludecr�t�cal�nfrastructure�nformat�onregard�ngthelocat�onofagr�culture-relatedent�t�es,�nclud�ngthelocat�onofl�vestockandprocess�ngplants,aswellastypesofchem�calsusedatprocess�ngplantsandhowtheyarestored;thelocat�onofwaterstoragefac�l�t�esandsusp�c�ousact�v�tysurround�ngthesefac�l�t�es;andanyunusualtamper�ngoffoodproducts.Inadd�t�on,theseent�t�escanprov�defus�oncentersw�th�nformat�onregard�ngsusp�c�ous�nc�dentsthatmayoccurrelat�ngtoagr�cultureandagr�cultural-relatedcr�metrends.Subject-matterexpertscanprov�defus�oncentersw�thresourcesandexpert�sewhenagricultural-related threats are identified.

L�stedbelowarevar�ousent�t�esthatfus�oncentersshouldcons�derfor�ntegrat�on.

U.S.DepartmentofAgr�culture(USDA),www.usda.gov/U.S.DepartmentofHealthandHumanServ�ces,www.hhs.govU.S.Env�ronmentalProtect�onAgency,www.epa.govStateagr�culturedepartmentsFood/waterproduct�onfac�l�t�es(farm/ranch/preharvest)Food/waterprocess�ngfac�l�t�esGrocerystores/supermarketsRestaurantsInformat�onShar�ngAnalys�sCenters(ISAC)

Agr�cultureFoodWater

FoodandAgr�cultureSectorCoord�nat�ngCounc�l

Banking and FinanceThis category is composed of financial ent�t�es,�nclud�ngbanks,�nvestmentfirms, credit companies, and government-related financial departments. Entities w�th�nth�scategorycanprov�defus�oncentersw�th�nformat�onrelatedtothebank�ng�ndustry,�nclud�ngsusp�c�ousact�v�ty,cr�t�cal�nfrastructure�nformat�on,andcr�metrends(e.g.,fraud,�dent�tytheft,andsusp�c�ousact�v�tyreports).Ent�t�esw�th�nth�scategorymayalsoprov�defus�oncentersw�thtact�cal�nformat�on,�nclud�ng�nformat�ontoa�d

C-2 Fusion Center Guidelines—Developing and Sharing Information in a New Era

�nongo�ngcr�m�nal�nvest�gat�ons,e.g.,account�nformat�onandcred�th�story(with applicable legal authorization). The ent�t�es�nclude:

U.S.DepartmentoftheTreasury,www.ustreas.gov

F�nanc�alCr�mesEnforcementNetwork(F�nCEN),www.fincen.gov

State financial departmentsBank�ngcompan�esInvestmentcompan�esCred�tcardcompan�esCred�treportcompan�esSecurities firmsF�nanc�alserv�cesISACF�nanc�alServ�cesSectorCoord�nat�ngCounc�lwww.fsscc.org/

Chemical Industry and Hazardous MaterialsTh�scategory�scomposedofent�t�esthatarerespons�blefortheproduct�on,storage,transportat�on,anddel�veryof chemicals and other hazardous mater�als.Theseent�t�esmayprov�defus�oncentersw�th�nformat�onontypesofchemicals and hazardous materials, how chemicals and hazardous materials may affectacontam�natedarea,susp�c�ousact�v�tyrelat�ngtothechem�cal�ndustryor hazardous materials, and critical �nfrastructure�nformat�on.Theent�t�es�nclude:

U.S.Env�ronmentalProtect�onAgency(EPA),www.epa.govU.S.DepartmentofTransportat�on’sPipeline and Hazardous Materials SafetyAdm�n�strat�on(PHMSA),www.phmsa.dot.gov/Stateenv�ronmentaldepartments(e.g.,NaturalResourcesandEnv�ronmentalProtect�on)F�redepartmentsand/orlocalhazardous material response agenc�esChem�cal�ndustryChemtrec:24/7EmergencyCommun�cat�onsCenterforthechem�cal�ndustryChem�cal�ndustryISACNational Petrochemical and Refiners Assoc�at�on,www.npradc.org/Amer�canChem�stryCounc�l,

www.amer�canchem�stry.comPharmaceut�calcompan�es

Criminal Justice Thesearecomponentsoflocal,state,tr�bal,andfederalgovernmentsandarerespons�bleforthemanagementofcr�m�nalconv�ct�on,�ncarcerat�on,reform,andre�ntegrat�on(�.e.,lawenforcement,courts,andcorrect�ons).Th�scategorycanprov�defus�oncentersw�thavar�etyof�nformat�on,�nclud�ngcr�metrendsandthreatassessments.Inadd�t�on,th�scomponentcanprov�debook�ngphotos,b�ograph�cal�nformat�on,andh�stor�calcr�m�nalact�v�tyregard�ngpersons,businesses, and organizations. Criminal just�ceent�t�escanprov�defus�oncentersw�thstrateg�candtact�cal�nformat�onand�ntell�gence.

Thefollow�ng�sacomp�lat�onoforganizations that should be considered when�ntegrat�ngthecr�m�naljust�cesector�ntofus�oncenters.Th�sl�st�snotexhaust�vebutshouldbeusedasafoundat�on.Alsoprov�dedareexamplesofthetypesof�nformat�onava�labletoshare.Theent�t�es�nclude:

LawEnforcementAgencies:Canprov�defus�oncentersw�thavar�etyof�nformat�on,�nclud�ngcr�metrends,drugandthreatassessments,case�nformat�on(v�olentcr�me,econom�ccr�me,narcot�cs,and terrorism), seizure information, andcr�m�nalact�v�ty,bothh�stor�calandcurrent,onpersons,bus�nesses,organizations, and locations.

LocallawenforcementC�tyandcountyCollegeandun�vers�typol�cedepartments

StatelawenforcementH�ghwaypatrolStateagenc�esw�th�nvest�gat�onsbureaus

Tr�ballawenforcementFederallawenforcement

FederalBureauofInvest�gat�onU.S.MarshalsServ�ceU.S.DrugEnforcementAdm�n�strat�onBureauofAlcohol,Tobacco,F�rearmsandExplos�vesU.S.Imm�grat�onandCustomsEnforcement

U.S.SecretServ�ceU.S.PostalInspect�onServ�ceU.S.P.S. Office of Inspector General

CourtSystem:Canprov�de�nformat�ononcr�m�nalcases,cr�m�nalh�story,d�spos�t�ons,andb�ograph�cal�nformat�onontargets.

CountyclerkofcourtsCr�m�naljust�ce�nformat�onsystemsU.S.courts

CorrectionsAgencies:Canprov�defus�oncentersw�thbook�ngphotos,lastknownaddresses,gang�nformat�on,namesofassoc�atesandrelat�ves(v�s�tors),andb�ograph�cal�nformat�on.

Countyja�lStatepr�sonsystemFederalBureauofPr�sons

ProbationandParoleAgencies:Canprov�de�nformat�onregard�ngemployment�nformat�onofsuspectsandcurrentaddressesofsuspects.

Probation officersParoleboard

EducationTh�scategory�scomposedoforganizations and businesses that arerespons�blefortheeducat�onofch�ldrenandadults.Ent�t�esw�th�nth�scomponentcanprov�defus�oncentersw�th�nformat�onregard�ngsusp�c�ousact�v�t�esoccurr�ngonandaroundschoolgrounds,aswellas�nformat�ononcr�t�cal�nfrastructureandassoc�atedr�skassessments.Inadd�t�on,�ntheeventofaterror�st�nc�dentorcr�merelat�ngtoschools,�t�s�mportantforfus�oncenterstohaveestabl�shedpartnersh�pstoa�d�ncommunication and information flow. The ent�t�es�nclude:

DaycarecentersPreschoolsPr�maryandsecondaryschoolsPostsecondaryschools

Collegesandun�vers�t�esTechn�calschools


Emergency Services (Non-LawEnforcement)Ent�t�esw�th�nth�scategoryarecomponentsoflocal,state,tr�bal,andfederalgovernmentsandarerespons�blefortheprotect�onandsafetyofl�vesandpropertyw�th�najur�sd�ct�on.Commonlyone of the first responders to an incident, theEmergencyMed�calServ�cescategorycanprov�debothstrateg�candtact�cal�nformat�on.Below�sal�stofemergencyserv�cesent�t�es;th�sl�st�snotcomprehens�vebutprov�desfus�oncentersw�thafoundat�ontobu�ldon.Theent�t�es�nclude:

Fire: Can prov�de assessments on typesof fires, how specific fires are started, and ongoing fire investigation information.

Local fire departmentsPrivate fire departmentsU.S.F�reAdm�n�strat�on,www.usfa.fema.govU.S.F�reMarshalForestrydepartments

EmergencyMedicalServices(EMS):Canprov�de�nformat�onregard�ngtypesof�njur�esoccurr�ngatan�nc�dentandsusp�c�ousact�v�tythatEMStechn�c�ansmay observe while performing official dut�es.

Local fire departmentsHosp�talPr�vateEMSserv�ces

HazardousMaterials:Canprov�de�nformat�onond�fferenttypesofhazardous materials and hazardous mater�alsp�lls,aswellas�nc�dentandoperat�onsdata.

Local fire departmentsEnv�ronmentalProtect�onAgenc�esU.S.DepartmentofTransportat�on,Office of Hazardous Materials Safety, http://hazmat.dot.gov/Private hazardous material contractors

EmergencyManagement:Canprov�de�nformat�ononlocat�onofcr�t�calinfrastructure, notifications of declared emergenc�es,andthreatassessments.

Emergencymanagementd�rectorsFederalEmergencyManagementAgency

CivilAirPatrol:Canofferavar�etyofserv�ces,�nclud�nghomelandsecur�tym�ss�ons,counterdrugm�ss�ons,andsearch-and-rescueoperat�ons.

Health:Depend�ngonthe�nc�dent(e.g.,wh�tepowder�nc�dents),healthdepartmentrepresentat�vesmaytakepart�nresponseefforts.SeetheHealthandPubl�cHealthServ�cescategoryforadd�t�onalhealth�nformat�on.

EnergyTh�scategoryconta�nsent�t�esthatfocusonthedevelopmentandd�str�but�onofenergy-relatedproducts.Theseent�t�escanprov�destrateg�candtact�cal�nformat�on,�nclud�ngcr�t�cal�nfrastructure�nformat�on,r�skassessments,andsusp�c�ous�nc�dents.Th�sl�st�snotcomprehens�ve,andtheenergycomponentshouldbeevaluated�neachjur�sd�ct�ontodeterm�nefus�oncenterneeds.Theent�t�es�nclude:

U.S.DepartmentofEnergy,www.energy.govNuclearpowerplantsElectr�c�tycompan�esUt�l�t�esO�lcompan�esNaturalgascompan�esNorthAmer�canElectr�cRel�ab�l�tyCounc�l

GovernmentTh�scategory�scomposedofent�t�esthatenablethegovernmenttocarryoutits official duties, including licensing and regulat�onofent�t�es(people,bus�nesses,and organizations). These entities vary butshouldbecons�deredfor�nclus�on�ntofus�oncenters.Thefollow�ngl�st�snotexhaust�ve,andthefus�oncentershoulddeterm�newhatent�t�esto�nclude.

GameandFish:Canprov�defus�oncentersw�th�nformat�ononsusp�c�ousact�v�tyas�trelatestoboat�ng,suchas�nformat�onregard�ngcr�m�nal�nvest�gat�ons(e.g.,drug�nterd�ct�onandvessel identification).

GovernmentAdministration:Canprov�devar�oustypesof�nformat�onperta�n�ngtotaxandt�tle,cr�t�cal�nfrastructure,emergencyplann�ng,andc�v�lrecords,�nclud�ngpropertyappra�ser,mortgages,deeds,andc�v�lsu�ts.

MotorVehicleAdministration:Canprov�detact�cal�nformat�ontofus�oncentersregard�ngdr�ver’sl�cense�nformat�on,motorveh�clereg�strat�on,vehicle body files, and suspicious �nformat�onconcern�ngattemptstoobta�ndr�ver’sl�censes.

ParksandRecreationDepartments:Canprov�de�nformat�onregard�ngsusp�c�ousact�v�ty�nandaroundlocalparks.

U.S.DivisionofForestry:Canprov�de�nformat�onregard�ngsusp�c�ousact�v�t�esw�th�nanat�onalpark�nvolv�ngpersons,vehicles, and fires.

Health and Public Health ServicesTheseent�t�esarecomposedoflocal,state,tr�bal,andfederalgovernmentagenc�esandthepr�vatesectorandarerespons�bleforprotect�ngand�mprov�ngthe health of citizens. The following is a compilation of organizations that should becons�deredwhen�ntegrat�ngthehealthserv�cessector�ntofus�onscenters.Th�sl�st�snotexhaust�vebutshouldbeusedasafoundat�onforcollaborat�on.

Th�scategorycanprov�destrateg�candtact�cal�nformat�on.Inadd�t�on,theseent�t�eshaveaccessto�nformat�onregard�ngcr�t�calhealthserv�cesw�th�nacerta�ncommun�tyornat�onw�de.Th�s�nformat�oncan�dent�fytheread�nessofag�venareatorespondtoasafetythreat.Healthserv�cesagenc�esmayalsoprov�de�nformat�ontofus�oncentersregard�ngprescr�pt�ondrugtrends,d�seaseoutbreaks,andv�talstat�st�cs�nformat�on.Agenc�esw�th�nth�scategoryalsomon�torandtrackmed�c�neandvacc�nesuppl�esandarecapableof�dent�fy�nggaps�nava�lab�l�ty.

Avar�etyoftheseagenc�esshouldbecons�deredforpart�c�pat�on�ncerta�nfus�oncenters�tuat�ons.Forexample,�nruralareas,veter�naryhosp�talsmaybetheonlymed�calfac�l�t�esava�lable.Int�mesofcr�ses,manyofthesehosp�talsw�llbecapableofserv�ngastr�agecenters.Theveter�naryprofess�on�salsoacr�t�call�nktothehealthandproduct�v�tyof animal agriculture, including the fight aga�nstagroterror�sm.Theent�t�es�nclude:


Health Departments: Can prov�de�nformat�on on d�sease trends, locald�seaseoutbreaks,andv�talstat�st�cs.

LocalandstatehealthdepartmentsU.S.DepartmentofHealthandHumanServ�ces,www.hhs.gov

Hospitals:Canprov�de�nformat�onregard�ngsusp�c�ous�nc�dentsandpat�ent�nformat�on.Inadd�t�on,hosp�talsarev�tal�nresponseeffortstogaugetypesof�njur�es,totalnumber�njured,andhosp�talcapac�ty.

DiseaseControl:Canprov�ded�seaseassessments,�nformat�onregard�ngd�seaseoutbreaks,and�nformat�ononlaborator�esthatcanass�stw�thresponseandrecoveryefforts.

LocalandstatehealthdepartmentsCentersforD�seaseControlandPrevent�on(CDC),www.cdc.gov

FoodSafety:Canprov�de�nformat�onregard�ngfoodandwaterborned�seases,�nclud�ngreport�ngofsusp�c�ous�nc�dentsand�nvest�gat�veefforts.

HealthdepartmentsCentersforD�seaseControlandPrevent�on,www.cdc.gov/foodborneoutbreaks/U.S.DepartmentofAgr�culture,www.fs�s.usda.gov/Fact_Sheets/�ndex.asp

MedicalExaminers/DeathInvestigators:Canprov�de�nformat�onregard�ngsusp�c�ousdeaths,typesofdeath,andcausesofdeath.

MentalHealthFacilities:Cana�d�nresponseandrecoveryefforts.

Pharmaceutical:Canprov�destockp�le�nformat�onand�nformat�onrelat�ngtocr�t�cal�nfrastructureandsusp�c�ousact�v�tysurround�ngchem�calplants.

PrimaryCarePhysicians:Canprov�de�nformat�onregard�ngsusp�c�ous�njur�esandd�seasesandb�ograph�cal�nformat�on.

Veterinary:Canprov�de�nformat�onrelat�ngtosusp�c�ousact�v�t�esregard�ngd�seaseoutbreaks�nan�malsandcana�d�nresponseefforts.

CenterforVeter�naryMed�c�ne,www.fda.gov/cvm/default.html

Hospitality and LodgingTheseent�t�esfocusonsports,enterta�nment,tour�sm,andrecreat�on.Ent�t�esw�th�nth�scategorymayprov�de�nformat�onregard�ngsusp�c�ouspersonsoract�v�ty,cr�t�cal�nfrastructure�nformat�on,�nvest�gat�ve�nformat�on(e.g.,accesstoClosedC�rcu�tTelev�s�on[CCTV]),andtrends�ncr�me-relatedact�v�ty.Theent�t�es�nclude:

Gam�ng�ndustrySportsauthor�tySport�ngfac�l�t�esAmusementparksCru�sel�nesHotels,motels,andresortsConvent�oncenters

Information and TelecommunicationsTh�scategory�scomposedofthe�nformat�ontechnologyandcommun�cat�ons-related�ndustry,�nclud�ngcomputeroperat�ngsystems,hardwareandsoftwarecompan�es,Internetserv�ceprov�ders,andtelephonecompan�es.Th�scategorycanprov�deavar�etyof�nformat�on.Informat�ontechnologyent�t�escanprov�deexpert�seand�nformat�ononcomputertrends,�nclud�ngv�ruses,computer-hack�ng�nc�dents,andcybersecur�ty�n�t�at�ves.Telecommun�cat�onsent�t�escanprov�de�nformat�ononcr�t�cal�nfrastructure,susp�c�ous�nc�dents,andongo�ngcasesupport with proper authorization. These ent�t�es�nclude:

InformationTechnologyState technology officesInfraGard,www.�nfragard.net/Computerandsoftwarecompan�esITSectorCoord�nat�ngCounc�l

CommunicationsMed�atransm�ss�ontowersCommun�cat�onsInfrastructureSectorCoord�nat�ngCounc�l

TelecommunicationInternetserv�ceprov�dersElectron�cma�lprov�ders

FederalCommun�cat�onsComm�ss�on(FCC)Telecommun�cat�onscompan�es

W�relessHard-l�ne

CyberSecurityInformat�onTechnologyISACResearchandEducat�onNetwork�ngISACMult�-StateISACUn�tedStatesComputerEmergencyRead�nessTeam(US-CERT),www.us-cert.govNat�onalCyberSecur�tyD�v�s�on(NCSD)LawEnforcementandIntell�genceBranch

Military Facilities and Defense Industrial BaseTheseent�t�esmayprov�dem�l�taryexpert�se,cr�t�cal�nfrastructure�nformat�on,and�nformat�onrelat�ngtoresponseeffortsandsusp�c�ous�nc�dentsaroundm�l�tarybases.Th�scategory�ncludes:

Military Base Security: Can prov�de�nformat�on relat�ng to susp�c�ous�nc�dents that occur on and aroundm�l�tary bases, �nformat�on on personswho have attempted to ga�n access tothe base w�thout perm�ss�on, and cr�t�cal�nfrastructure�nformat�on.

NationalGuard:Canprov�de�nformat�onregard�ng cr�t�cal �nfrastructure, r�skassessments concern�ng m�l�tary ent�t�es,and �nformat�on related to weapons ofmassdestruct�on(WMD).

Defense Contractors: Compan�esprov�d�ngproductsandserv�cestosupportm�l�taryoperat�ons.

Postal and ShippingTh�scategorycons�stsofent�t�eswhosepr�maryrespons�b�l�ty�sthedel�veryofma�landpackages,frombothapubl�candpr�vateperspect�ve.ThePostalandSh�pp�ngcategorycanprov�detact�calandstrateg�c�nformat�onregard�ngtypesofma�l-outspr�vatecompan�esared�str�but�ngthatmaylooksusp�c�ous,susp�c�ouspackagesthatarebe�ngma�ledout,andongo�ngcr�m�nalinvestigations. The post office can, with proper authorization, provide information


tofus�oncentersaboutthetypesofma�lthatarebe�ngsenttotargethomesorbus�nesses.Theent�t�es�nclude:

U.S. Post OfficeSh�pp�ngcompan�es

Private SecurityWhenestabl�sh�ngafus�oncenter,pr�vatesecur�tyent�t�esshouldbecons�deredbecausetheymaybeabletoprov�decr�t�cal�nfrastructure�nformat�on,susp�c�ousact�v�tyreports,andbus�nesscont�nu�typlans.Theent�t�es�nclude:

Corporate security officesPr�vatesecur�tycompan�esAlarmcompan�esArmoredcarcompan�esInvestigative firms

Public WorksTheseent�t�esarerespons�blefor�nfrastructurecreatedforpubl�cuse.Ent�t�esw�th�nth�scategorymayprov�de�nformat�onregard�ngsusp�c�ousact�v�tyandcr�t�cal�nfrastructure,aswellassubject-matterexpertswhomayhelp�dent�fyr�sksassoc�atedw�thpubl�cworks.Theent�t�es�nclude:

Statedepartmentoftransportat�onWatermanagementd�str�ctsSan�tat�onWastemanagementRoadconstruct�oncompan�es

Real Estate Theseent�t�esfocusontherealestate-related�ndustry.Ent�t�esw�th�nth�scategorycanprov�de�nformat�onregard�ngsusp�c�ousact�v�t�es(e.g.,suspicious fires, persons, and activities) andongo�ngcase-related�nformat�onw�thproper authorization. The entities include:

Apartmentfac�l�t�esFac�l�tymanagementcompan�esHous�ngauthor�t�esRealEstateISAC

RetailThese companies and organizations are �nvolved�nthereta�l�ndustry;th�scan�ncludeshopp�ngmalls,wholesalestores,

d�str�but�oncenters,andonl�nestores.Theseent�t�esmayprov�de�nformat�ononsusp�c�ousact�v�ty�nandaroundthe shopping complex, identification ofvulnerab�l�t�esassoc�atedw�ththecomplex,cr�t�cal�nfrastructure�nformat�on,and�nvest�gat�veleads,�nclud�ngCCTV�nformat�on.Theent�t�es�nclude:

MallsReta�lstoresShopp�ngcenters

Social ServicesTheseent�t�esarecomposedoflocal,state,tr�bal,andfederalgovernmentagenc�esandthepr�vatesectorandarerespons�bleforprov�d�ngserv�cesthathelp�mprovepeople’sstandardofl�v�ng.

Th�scategorycanprov�de�nformat�onregard�ngthefunct�onandrespons�b�l�t�esofmanyava�lableprogramsandserv�ces.Soc�alserv�ceagenc�escanbethesourceofavar�etyof�nformat�on,�nclud�ngwelfarefraud.Theseprogramsandserv�cescanprov�decommun�tysupport,educat�on,andplann�ngass�stance�npreparat�onforandresponsetoapotent�alterror�stattack.Theent�t�es�nclude:

StateandChildWelfare:Canprov�de�nformat�onregard�ngwelfarefraud,electronic benefits transfer fraud, b�ograph�cal�nformat�onontargetsof�nvest�gat�onsand,w�thproperauthorization, employment-related �nformat�onontargets.

U.S.DepartmentofHealthandHumanServ�cesDepartmentofCh�ldrenandFam�l�es

MentalHealthFacilities:Cana�d�nresponseandrecoveryefforts.

TransportationEachlevelofgovernment(local,state,tr�bal,andfederal)andthepr�vatesectorhavetransportat�onent�t�eswhoserespons�b�l�t�es�ncludeav�at�on,ra�l,publ�ctransportat�on,h�ghway,andmar�t�meserv�ces.Bothgovernmentalandpr�vatetransportat�onent�t�esshouldbecons�deredwhenjur�sd�ct�onsareestabl�sh�ngafus�oncenter.Thefollowing is a compilation of organizations thatshouldbecons�deredwhen�ntegrat�ngthetransportat�onsector.Th�s

l�st�snotexhaust�vebutshouldbeusedasafoundat�on.

Th�scategorycanprov�deaccessto�nformat�onregard�ngthevar�oustransportat�oncorr�dorsthroughouttheUn�tedStates.Further,�tcanofferbothstrateg�candtact�cal�nformat�onthatcanbe�ncorporated�ntothe�ntell�genceandfus�onprocesses.Transportat�on-relatedagenc�escan�dent�fyther�sksandvulnerab�l�t�esofpotent�altargetareas,suchasroadsandra�lwaysthathavedirect access to hazardous waste sites andportsthathouse�nformat�ononthetypesofsh�psthataredockedandthecargotheycarry.Theent�t�es�nclude:

Aviation:Canprov�de�nformat�onregard�nga�rportcr�t�cal�nfrastructure,susp�c�ousact�v�ty,�temsthathavebeenconfiscated, accident analyses, and types ofcargothatarebe�ngsh�pped.

Transportat�onSecur�tyAdm�n�strat�on(TSA),www.tsa.govOffice of Aviation Safety (Component ofNat�onalTransportat�onSafetyBoard[NTSB]),www.ntsb.govFederalAv�at�onAdm�n�strat�on(FAA),www.faa.govAv�at�onSafetyReport�ngSystem(ASRS),http://asrs.arc.nasa.gov/Statedepartmentoftransportat�onStateaeronaut�cscomm�ss�onA�rportauthor�tyCommerc�ala�rl�necarr�ersPr�vatesh�pp�ngcompan�es(e.g.,FedExandUPS)

Highway:Canprov�de�nformat�ononcritical infrastructure, traffic crashes, �nterd�ct�onefforts,�llegalproductsthathave been seized, and cargo information.

FederalH�ghwayAdm�n�strat�on(FHWA),www.fhwa.dot.govFederalMotorCarr�erSafetyAdm�n�strat�on(FMCSA),www.fmcsa.dot.govNational Highway Traffic Safety Adm�n�strat�on(NHTSA),www.nhtsa.dot.govOffice of Highway Safety (Component ofNTSB),www.ntsb.gov/Surface/h�ghway/h�ghway.htmStatedepartmentoftransportat�onTurnp�keauthor�tyPubl�ctrans�t


Maritime:Canprov�de�nformat�ononportcr�t�cal�nfrastructure,vessel�nformat�on,cargo�nformat�on,susp�c�ousactivity, and contraband seizures.

U.S.CoastGuard,http://www.uscg.m�l/USCG.shtmMar�t�meAdm�n�strat�on(MARAD),www.marad.dot.gov/�ndex.htmlSa�ntLawrenceSeawayDevelopmentCorporat�on(SLSDC),www.seaway.dot.govOffice of Marine Safety (Component of NTSB),www.ntsb.gov/surface/mar�ne/mar�ne.htmPortauthor�tyPortscounc�lBr�dgeandtunnelauthor�tyHarbormasterand/orcommander

Rail:Canprov�de�nformat�ononcr�t�cal�nfrastructure(e.g.,thelocat�onofra�ll�nes)andtypesofcargobe�ngsh�pped,including hazmat information. Various pr�vatesectorra�lent�t�esalsohavelawenforcementcomponents.

FederalRa�lroadAdm�n�strat�on(FRA),www.fra.dot.govFederalTrans�tAdm�n�strat�on(FTA),http://trans�t-safety.volpe.dot.govSurfaceTransportat�onBoard(STB),www.stb.dot.govOffice of Railroad, Pipeline, and Hazardous Materials Safety (ComponentofNTSB),www.ntsb.gov/ra�lroad/ra�lroad.htmStatedepartmentoftransportat�onRa�lauthor�tyAmer�canRa�lroadAssoc�at�on

Fusion Center Guidelines—Developing and Sharing Information in a New Era D-1

U.S.DepartmentofHomelandSecur�tyHomelandSecur�tyAdv�soryCounc�l

Intell�genceAndInformat�onShar�ngIn�t�at�ve:HomelandSecur�tyIntell�gence&Informat�onFus�on

JosephJ.Grano,Jr.Cha�rmanHomelandSecur�tyAdv�soryCounc�l

WilliamH.WebsterV�ceCha�rmanHomelandSecur�tyAdv�soryCounc�l

DanielJ.OstergaardExecut�veD�rectorHomelandSecur�tyAdv�soryCounc�l

MittRomneyCha�rmanIntell�gence&�nformat�onShar�ng

Work�ngGroup

JohnCohenExecut�veD�rectorIntell�gence&�nformat�onShar�ng

Work�ngGroup

MichaelJ.MironD�rectorIntell�gence&�nformat�onShar�ng

Work�ngGroup

BackgroundEffect�veterror�sm-relatedprevent�on,protect�on,preparedness,response,andrecoveryeffortsdependont�mely,accurate,andact�onable�nformat�onaboutwhotheenem�esare,61where

61 Includ�ngthe�rcapab�l�t�es,�ntent�ons,strengths,weaknesses.

andhowtheyoperate,howtheyaresupported,thetargetstheenem�es�ntendtoattack,andthemethodofattackthey�ntendtouse.Th�s�nformat�onshouldserveasagu�deforeffortsto:

Ident�fyrap�dlyboth�mmed�ateandlong-termthreats;Ident�fypersons�nvolved�nterror�sm-relatedact�v�t�es;andGu�dethe�mplementat�onof�nformat�on-dr�venandr�sk-basedprevent�on,response,andconsequencemanagementefforts.

Terror�sm-related�ntell�gence�sder�vedby collecting, blending, analyzing, and evaluat�ngrelevant�nformat�onfromabroadarrayofsourcesonacont�nualbas�s.There�snos�nglesourceforterror�sm–related�nformat�on.Itcancomethroughtheeffortsofthe�ntell�gencecommun�ty;Federal,State,tr�bal,andlocallawenforcementauthor�t�es;othergovernmentagenc�es(e.g.,transportat�on,healthcare,generalgovernment),andthepr�vatesector(e.g.,transportation, healthcare, financial, Internet/�nformat�ontechnology).

Forthemostpart,terror�sm-related�nformat�onhastrad�t�onallybeencollectedouts�deoftheUn�tedStates.Typ�cally,thecollect�onofth�stypeof�nformat�onwasv�ewedastherespons�b�l�tyofthe�ntell�gencecommun�tyand,therefore,therewasl�ttletono�nvolvementbymostStateandlocallawenforcementent�t�es.TheattacksofSeptember11,2001,however,taughtusthatthosewant�ngtocomm�tactsofterror�smmayl�ve�nourlocalcommun�t�esandbeengaged�n

Appendix DHSAC Homeland Security Intelligence and Information Fusion Report April 28, 2005

cr�m�naland/orothersusp�c�ousact�v�tyastheyplanattacksontargetsw�th�ntheUn�tedStatesand�tsterr�tor�es.Important�ntell�gencethatmayforewarnofafutureattackmaybeder�vedfrom�nformat�oncollectedbyState,tr�bal,andlocalgovernmentpersonnelthroughcr�mecontrolandotherrout�neact�v�t�esand/orbypeoplel�v�ngandwork�ng�nourlocalcommun�t�es.Successfulcounterterror�smeffortsrequ�rethatFederal,State,tr�bal,local,andpr�vate-sectorent�t�eshaveaneffect�ve�nformat�onshar�ngandcollaborat�oncapab�l�tytoensuretheycanseamlesslycollect, blend, analyze, disseminate, anduse�nformat�onregard�ngthreats,vulnerab�l�t�es,andconsequences�nsupportofprevent�on,response,andconsequencemanagementefforts.

ThePres�dentandtheU.S.Congresshaved�rectedthatan�nformat�onshar�ngenv�ronment(ISE)becreated�nthenexttwoyearstofac�l�tate�nformat�onshar�ngandcollaborat�onact�v�t�esw�th�ntheFederal Government (horizontally) and betweenFederal,State,tr�bal,local,andpr�vate-sectorent�t�es(vert�cally).Theconceptof�ntell�gence/�nformat�onfus�onhasemergedasthefundamentalprocess(orprocesses)tofac�l�tatetheshar�ngofhomelandsecur�ty-related�nformat�onand�ntell�genceatanat�onallevel,and,therefore,hasbecomeagu�d�ngpr�nc�plein defining the ISE.

D-2 Fusion Center Guidelines—Developing and Sharing Information in a New Era

Homeland Security Intelligence/Information FusionHomelandsecur�ty�ntell�gence/�nformat�onfus�on�stheoverarch�ngprocess of managing the flow of �nformat�onand�ntell�genceacrosslevelsandsectorsofgovernmentandthepr�vatesector to support the rapid identification ofemerg�ngterror�sm-relatedthreatsandotherc�rcumstancesrequ�r�ng�ntervent�onbygovernmentandpr�vate-sectorauthor�t�es.It�smorethantheone-t�mecollect�onoflawenforcementand/orterror�sm-related�ntell�gence�nformat�onand�tgoesbeyondestabl�sh�ngan�ntell�gencecenterorcreat�ngacomputernetwork.Intell�gencefus�on�saclearlydefined, ongoing process that involves the del�neat�onofrolesandrespons�b�l�t�es;thecreat�onofrequ�rements;andthecollect�on,blend�ng,analys�s,t�melyd�ssem�nat�on,andreevaluat�onofcr�t�caldata,�nformat�on,and�ntell�genceder�vedfromthefollow�ng:

Autonomous�ntell�genceand�nformat�onmanagementsystems(techn�calandoperat�onal)establ�shedtosupportthecorem�ss�onsof�nd�v�dualFederal,State,local,tr�bal,andgovernmentent�t�es;Generalpubl�c;andPr�vate-sectorent�t�es.

Thefus�onprocess�sakeypartofournat�on’shomelandsecur�tyefforts.Th�sprocesssupportsthe�mplementat�onofr�sk-based,�nformat�on-dr�venprevent�on,response,andconsequencemanagementprograms.S�multaneously,�tsupportseffortstoaddress�mmed�ateand/oremerg�ng,threat-relatedc�rcumstancesandevents.Althoughthecollect�on,analys�s,andd�ssem�nat�onofterror�sm-related�ntell�gence�snotthesolegoalofthefus�onprocess,oneofthepr�nc�paloutcomes should be the identification ofterror�sm-relatedleads—that�s,anynexusbetweencr�me-relatedandother�nformat�oncollectedbyState,local,tr�bal,andpr�vateent�t�esanda terrorist organization and/or attack. Thefus�onprocessdoesnotreplaceorreplicate mission-specific intelligence and�nformat�onmanagementprocessesandsystems.Itdoes,however,leverage�nformat�onand�ntell�gencedevelopedthroughtheseprocessesandsystemstosupport the rapid identification of patterns

andtrendsthatmaybe�nd�cat�veofanemerg�ngthreatcond�t�on.Althoughthepr�maryemphas�sof�ntell�gence/�nformat�onfus�on�sto�dent�fy,deter,andrespondtoemerg�ngterror�sm-relatedthreats and risks, a collateral benefit to State,tr�balandlocalent�t�es�sthat�tw�llsupportongo�ngeffortstoaddressnonterror�smrelated�ssuesby:

Allow�ngStateandlocalent�t�estobetter�dent�fyandforecastemerg�ngcr�me,publ�chealth,andqual�ty-of-l�fetrends;Support�ngtargetedlawenforcementandothermult�d�sc�pl�nary,proact�ve,r�sk-basedandcommun�ty-focused,problem-solv�ngact�v�t�es;andImprov�ngthedel�veryofemergencyandnonemergencyserv�ces.Effect�ve�ntell�gence/�nformat�onfus�onrequ�resthefollow�ng:Theuseofcommonterm�nology,definitions, and lexicon by all stakeholders;Up-to-dateawarenessandunderstand�ngoftheglobalanddomest�cthreatenv�ronment;Aclearunderstand�ngofthel�nksbetweenterror�sm-related�ntell�genceandnonterror�sm-related�nformat�on(e.g., flight school training, drug trafficking) so as to identify those act�v�t�esthatareprecursorsor�nd�catorsofanemerg�ngthreat;Clearly defined intelligence and �nformat�onrequ�rementsw�ththeFederal�ntell�gencecommun�tythat prioritize and guide planning, collect�on,analys�s,d�ssem�nat�on,andreevaluat�onefforts;Ident�fy�ngcr�t�cal�nformat�onrepos�tor�es62andestabl�sh�ngtheprocesses,protocols,procedures,andtechn�calcapab�l�t�estoextract�nformat�onand/or�ntell�gencefromthoserepos�tor�es;Rel�anceonex�st�ng�nformat�onpathwaysandanalyt�cprocessesasss�ble;

62 Theserepos�tor�esarenotl�m�tedtothosema�nta�nedbylawenforcementent�t�es.Forexample,cr�t�cal�nformat�onmaybeconta�ned�nsystemssupport�ngmed�calexam�ners(unattendeddeath),publ�chealthent�t�es,emergencyrooms(�nformat�ons�m�lartotheDrugAbuseWarn�ngNetworkprogram),env�ronmentalregulatory�nspectors,transportat�onent�t�es,hous�ng�nspectors,health�nspectors,bu�ld�ngcode�nspectors,etc.

All-hazards and all-crimes approach to defining information collection, analys�s,andd�ssem�nat�on;Cleardel�neat�onofroles,respons�b�l�t�es,andrequ�rementsofeachlevelandsectorofgovernment�nvolved�nthefus�onprocess;Understand�ngandel�m�nat�onof�mped�mentsto�nformat�oncollect�onandshar�ng(�.e.,�tshouldbeapr�or�tyfortheFederalGovernmenttoprov�deState,local,andtr�balentities unclassified terrorism-related �nformat�on/�ntell�gencesothat�tcanbe�ntegrated�ntostatew�deand/orlocalfus�onefforts);Capac�tytoconvert�nformat�on�ntooperat�onal�ntell�gence;Extens�veandcont�nuous�nteract�onw�ththepr�vatesectorandw�ththepubl�catlarge;Connect�v�ty(techn�caland/orprocedural)w�thcr�t�cal�ntell�gencestreams,analys�scenters,commun�cat�oncenters,and�nformat�onrepos�tor�esatalllevelsofclassification as necessary;Extens�vepart�c�pat�onofsubject-matterexperts(SMEs)�ntheanalyt�calprocess;andCapac�tyandcomm�tmenttoensureaggress�veovers�ghtandaccountab�l�tysoastoprotectaga�nstthe�nfr�ngementofconst�tut�onalprotect�onsandc�v�ll�bert�es.

Participants in the Fusion ProcessTosomedegree,thefus�onprocess�nvolveseverylevelandsector(d�sc�pl�ne)ofgovernment,thepr�vate-sector,andthepubl�c.Thelevelof�nvolvementfromthesepart�c�pantsw�llvarybasedonspecific circumstances. Some disciplines, suchaslawenforcement,representacorecomponentofthefus�onprocessbecauseoftherelat�onsh�pbetweencr�meandbecause,�nmanycases,lawenforcementauthor�t�esarebest-su�tedtocoord�natestatew�deandlocalfus�onefforts.M�n�mally,thefus�onprocessshould be organized and coordinated on astatew�delevelandeachStateshouldestabl�shandma�nta�nananalyt�ccentertofac�l�tatethefus�onprocess.Eachmajor urban area (as defined by the UrbanAreaSecur�tyIn�t�at�ve[UASI]program)maywanttoestabl�shas�m�larcapac�tyensur�ng�t�s�nterl�nkedw�ththe

Fusion Center Guidelines—Developing and Sharing Information in a New Era D-3

fus�onprocessestabl�shedbytheState.Otherlocal�t�es,tr�balgovernments,andevenpr�vate-sectorent�t�esshoulddevelopaprocessto�nterl�nkandpart�c�pate�nthesestatew�de(orUASI)fus�onefforts.Thepubl�cshouldbeengagedthroughpubl�ceducat�onprogramsthatdescr�bewhattheyshouldlookforandwhattodo�ftheyobservesusp�c�ousact�v�t�esorc�rcumstances.

Efforts should be organized and managed onageograph�cbas�sandscalablesoadjustmentscanbemadebasedonchanges�ntheoperat�ngand/orthreatenv�ronment.Wh�lenat�onalstandardsandgu�del�nesshouldgu�detheinstitutionalization of the process, the actualtechnolog�cal�nfrastructureandoperat�onalprotocolsusedby�nd�v�dualjur�sd�ct�onsshouldbebasedonthemanagement structure, specific needs, andcapab�l�t�esofeach�nd�v�dualjur�sd�ct�on.

Stages of the Fusion Process Fus�on�scycl�calprocessthat�ncludesthefollow�ngstagesandact�v�t�es:

Management/GovernanceDefine a management structure (e.g.,who�s�ncharge,whatent�tyw�llmanageandcoord�nateda�lyact�v�t�es).Ident�fycore(permanent)andadhocstakeholders.Des�gnagovernancestructureadv�sorycomm�ttee(mult�d�sc�pl�naryandmult�levelofgovernment).Define goals and objectives.Develop a process to define �nformat�onand�ntell�gencecollect�onrequ�rements.Developtheprocessandnecessarymemorandumsofunderstand�ngtocommun�caterequ�rements.

PlanningandRequirementsDevelopment

Conduct(andupdatefrequently)acomprehens�veandcompat�bler�skassessment(threat,vulnerab�l�ty,andconsequence).Ident�fypatternsandtrendsreflective of emerging threats.

Define collection requirements basedonresultsofr�skassessments.Ident�fythec�rcumstancesorevents(e.g.,cr�me,publ�chealth)thatrepresent�nd�catorsand/orprecursorsofthreats.Ident�fythesourcesand/orrepos�tor�esofdataand�nformat�onregard�ng�nd�catorsandprecursors.Ident�fytheex�st�ngcapac�tytocollectkey�nformat�onfromex�st�ngsources.Ident�fycollect�ongapsandm�t�gate.Define public education, and other act�v�t�esnecessarytoenhances�tuat�onalawarenessbythepubl�c.Developtra�n�ngforfrontl�nelawenforcementandotherpersonnelsothattheycanbetter�dent�fysusp�c�ousact�v�t�esthatmayrepresentplann�ngand/oroperat�onalact�v�tybyterror�stgroup.Ensureamechan�smex�ststosupportreport�ngofcollected�nformat�on(e.g.,9-1-1,t�pl�ne,Internet,connect�v�tytokey�nformat�onsystems).Ident�fyregulatory,statutory,pr�vacy,and/orother�ssuesthat�mpedecollect�onandshar�ngof�nformat�on.Develop(�npartnersh�pw�thprivate-sector officials) detailed knowledgeofvulnerab�l�t�esandconsequence�nthepr�vatesectortoposs�bleterror�stattackstoassessthel�kel�hoodofattack,thel�kelymethodsofattack,thel�kelyequ�pmentandsubstancesusedtocarryoutsuchanattack,and�dent�fyplann�ngact�v�t�es.

CollectionCommun�catecollect�onrequ�rementstorelevantState,tr�bal,local,andpr�vate-sectorent�t�es.Implements�tuat�onalawarenessact�v�t�es(e.g.,tra�n�ng,publ�ceducat�on).M�t�gate�mped�mentstocollect�on.Compile classified and unclassified data, information and

�ntell�gencegeneratedbypeopleand organizations. Serveasthe24/7/365�n�t�alpo�ntofcontactfor�nformat�onprov�dedbytheU.S.DepartmentofHomelandSecur�ty,DepartmentofDefense,DepartmentofJust�ce,FederalBureauofInvest�gat�on,andotherFederalent�t�es(v�atelephonecalls,HomelandSecur�tyInformat�onNetwork/Jo�ntReg�onalInformat�onExchangeSystem,LEO,e-ma�lbullet�ns,VTC,fax)fortherece�ptofthefollow�ng:

Immediate threat-specific information (classified and unclassified)Long-termthreatinformation(classified and unclassified)Tacticsandmethodsusedby terrorists (classified and unclassified)

Integratew�thotherreport�ngsystems(e.g.,9-1-1,3-1-1),andestabl�shandma�nta�nfurther,easy-to-usecapab�l�tyforthepubl�creport�ngofsusp�c�ousact�v�ty�nconjunct�onw�ththeJo�ntTerror�smTaskForce(e.g.,�nternet,toll-freet�pl�ne).Establ�shaprocessto�dent�fyandtrackreportsofsusp�c�ousc�rcumstances(e.g.,pre-operat�onalsurve�llance,acqu�s�t�onof�temsused�nanattack).

AnalysisBlenddata,�nformat�on,and�ntell�gencerece�vedfrommult�plesources.Reconcile, deconflict data, and val�dateastocred�b�l�tyofdata,�nformat�onand�ntell�gencerece�vedfromcollect�onsources.Evaluate and analyze data and �nformat�onus�ngSMEs.Identify and prioritize the risks facedbythejur�sd�ct�on(e.g.,State,local).Producevalue-added�ntell�genceproductsthatcansupportthedevelopmentofperformance-dr�ven,r�sk-basedprevent�on,response,andconsequencemanagementprograms.Identify specific protective measuresto�dent�fyandd�srupt

D-4 Fusion Center Guidelines—Developing and Sharing Information in a New Era

potent�alterror�stattacksdur�ngtheplann�ngandearlyoperat�onalstages.

Dissemination,Tasking,andArchiving

Ident�fythoseent�t�esandpeople(e.g., officials, executives) respons�blefordevelop�ngand�mplement�ngprevent�on,response,andconsequencemanagement(publ�candpr�vate)efforts.Prov�derelevantandact�onable�ntell�gence�nat�melymannertothoseent�t�esrespons�blefor�mplement�ngprevent�on,response,andconsequencemanagementefforts(publ�candpr�vatesector).Arch�vealldata,�nformat�on,and�ntell�gencetosupportfutureefforts.Supportthedevelopmentofperformance-basedprevent�on,response,andconsequencemanagementmeasures.Establ�shthecapac�tytotrackperformancemetr�csassoc�atedw�thprevent�on,response,andconsequencemanagementefforts.Prov�defeedbackto�nformat�oncollectors.

ReevaluationTracktheach�evementofprevent�on,response,andconsequencemanagementprogramperformancemetr�cssoastoevaluate�mpactonther�skenv�ronment.Updatethreat,vulnerab�l�ty,andconsequenceassessmentssoastoupdatether�skenv�ronment.

Assesseffect�venessofnat�onal(�.e.,Federal,State,tr�bal,andlocal)�ntell�genceand�nformat�oncollect�onrequ�rementsprocess.

Modification of RequirementsMod�fycollect�onrequ�rementsasnecessary.Communicate modifications in a t�melymanner.

Intelligence and Information Sharing Working Group MembersCha�r,GovernorM�ttRomney(Homeland

Secur�tyAdv�soryCounc�l[HSAC])ChuckCanterbury(HSAC)FrankC�lluffo(HSAC)MajorGeneralBruceLawlor(Ret�red)

(HSAC)MayorPatr�ckMcCrory(HSAC)Lyd�aThomas(HSAC)MayorKarenAnderson(StateandLocal

Sen�orAdv�soryComm�ttee[SLSAC])JamesDunlap(SLSAC)DonKnabe(SLSAC)PeggyMerr�ss(SLSAC)KarenM�ller(SLSAC)MayorDonaldPlusquell�c(SLSAC)M�chaelCarona(EmergencyResponse

Sen�orAdv�soryComm�ttee[ERSAC])FrankCruthers(ERSAC)EllenGordon(ERSAC)Ph�ll�pKe�th(ERSAC)PaulMan�scalco(ERSAC)Dr. Allan Zenowitz (Academe, Policy and

ResearchSen�orAdv�soryComm�ttee)GeorgeVradenburg(Pr�vateSector

Sen�orAdv�soryComm�ttee)John Cohen (Office of the Governor,

Massachusetts)Cindy Gillespie (Office of the Governor,

Massachusetts)

Fusion Group Subject-Matter ExpertsKennethBouche,Colonel,StatePol�ce,

Ill�no�sDanCooney,Capta�n,StatePol�ce,New

YorkGeorgeForesman,HomelandSecur�ty

Adv�sor,V�rg�n�aBartJohnson,L�eutenantColonel,State

Pol�ce,NewYorkFredLaMontagne,F�reCh�ef,Ma�nePeteModaffer�,Ch�efofDetect�ves,

RocklandCounty,NewYorkSteveMcGraw,HomelandSecur�ty

Adv�sor,TexasJ�mMcMahon,HomelandSecur�ty

Adv�sor,NewYorkTom O’Reilly, Office of the Attorney

General,NewJerseyRussPorter,Ass�stantD�rector,

DepartmentofPubl�cSafety,IowaMark Zadra, Chief of Investigations, Office

ofStatew�deIntell�gence,Flor�daDepartmentofLawEnforcement

Homeland Security Advisory Council StaffDanOstergaard,Execut�veD�rector,

HomelandSecur�tyAdv�soryCounc�lR�chDav�s,D�rector,AcademeandPol�cy

ResearchSen�orAdv�soryComm�tteeJeffGaynor,D�rector,Emergency

ResponseSen�orAdv�soryComm�tteeKat�eKnapp,Spec�alAss�stanttothe

HomelandSecur�tyAdv�soryCounc�lM�keM�ron,D�rector,StateandLocal

Officials Senior Advisory CommitteeCandace Stoltz, Director, Private Sector

Sen�orAdv�soryComm�ttee

Fusion Center Guidelines—Developing and Sharing Information in a New Era E-1

Appendix EInformation Exchange Analysis and Design Report

Information Exchange Analysis and DesignAnalyze information exchange among law enforcement and homeland security partners and build models for successful information sharing.

JustificationLawenforcementandhomelandsecur�typartnersoperatemyr�adsystemsforcollecting, maintaining, analyzing, and shar�ngdataand�nformat�oncr�t�caltocarry�ngoutthe�rrespect�vem�ss�ons.Creat�ngthecapac�tytoshare�nformat�onamongandbetweenagenc�es,levelsofgovernment,andavar�etyofd�sc�pl�nes—�ndeed,creat�nganenterpr�seapproach—meansovercom�ngestabl�shedbarr�erstodataexchange.It�nvolvesunderstand�ngcross-jur�sd�ct�onal�nformat�onneedsandthedataexchangesthatcrosssomet�mesrad�callyd�fferentl�nesofbus�ness.

Informat�onexchange�nanyenv�ronment�str�ggeredby�nternalorexternalevents.Inthejust�cesystemandhomelandsecur�tyenv�ronments,thesetr�gger�ngeventsarethekeydec�s�onpo�nts�nourrout�nebus�nessprocesses,suchas an arrest, a traffic accident involving hazardous materials, a release from pr�son,oraterror�st�nc�dent.Inordertoshare�ntell�genceelectron�cally,�t�sessent�altounderstandthenatureofthesebus�nessprocesses,dec�s�onpo�nts,andtr�gger�ngevents.

Most organizations do an adequate job ofapply�ngtechnology�nthe�r�nternalenv�ronments.Ontheotherhand,

most�nformat�onexchangebetweenorganizations is not developed with s�m�larr�gor,follow�ngthe“anarchymodel.”Intheanarchymodel,each�nterface�sacustom�nterface,anddec�s�onsabout�nformat�onshar�ngaremadew�thoutregardforotherdatathatmaypassbetweenthesametwoorganizations and without regard for otheragenc�esthatmayneedthesame�nformat�on.

As�nterfacesareconstructedw�thth�sanarchymodel,arch�tecturaldec�s�onsaremadethatmayconstra�nfutureefforts to share data by organizations that mayhaveno�nterest�ntheseor�g�nalexchanges.Forexample,adec�s�onbycourtsandprosecutorstoestabl�shadatawarehouseasacentrallocat�onforshar�ngdocumentselectron�callyw�llmake it more difficult and expensive for lawenforcementagenc�estodevelopam�ddlewareapproachforshar�ngtraffic accident information. In a second example,lawenforcementagenc�esandthecourtsmaydec�deonanapproachforshar�ngc�tat�on�nformat�onelectron�cally,w�thoutconsult�ngtheprosecutor,thestatemotorveh�cled�v�s�on,orthestatecr�m�nalh�storyrepos�tory,wh�chalsohavean�nterest�nelectron�cc�tat�ondata.

Therearetwoproblemsthatresultfromappl�cat�onoftheanarchymodel:1)thearch�tecturethatevolves�sseldomopt�malandoften�s�nadequateformostother�nformat�onexchange,and2)effortstoexpand�nformat�onexchangegenerallyendupcollaps�ngbeneaththe�rownwe�ghtasthenumberofdatatrad�ngpartners�ncreases.What�sneeded�sanenterpr�semodelfordes�gn�ng

�nformat�onexchangeforfus�oncenters.Anenterpr�seapproachcons�dersallofthe�nformat�onexchangeneedsofallstakeholderswhendevelop�ngthe�ntegrat�onarch�tecture.

Whether�nterfacesbetweensystemsforshar�ng�ntell�gencecons�stofs�mplequer�esandresponses,oraremoresoph�st�catedtransact�onalprocessesthatbu�ldcentral�ndexentr�esorpopulatedatawarehouses,�t�s�mportanttodocument and analyze this information exchangeattheplann�ngstageofaprojectandtocreateabluepr�ntattheenterpr�selevelforshar�ngdataelectronically that capitalizes on efficiency, accuracy,andt�mel�ness.Th�sdes�gnshouldbecreatedbybus�nessexpertsfrom the participating organizations, under thed�rect�onofpol�cyleadersandw�ththeass�stanceoftechnolog�sts.Itshouldbebasedonad�sc�pl�nedexam�nat�onofcurrentbus�nesspract�ces,ex�st�ngtechnology,andpaperandelectron�cexchangeof�ntell�gencethatalready�soccurr�ng.

The Justice Information Exchange Model (JIEM)TheJust�ceInformat�onExchangeModel(JIEM)�satoolthatcanass�stfus�oncenters�nperform�ngthese�mportanttasks.JIEMdocumentstheprocesses,tr�gger�ngevents,andcond�t�onsthatgovern�nformat�onexchangeattheenterpr�selevel.Itmodels the data that flows or should flow between organizations. It is a plann�ngtool,abus�nessmodel�ngtool,an�nformat�onexchangemodel�ngtool,andadatamodel�ngtool.It�sl�nked

E-2 Fusion Center Guidelines—Developing and Sharing Information in a New Era

w�ththeGlobalJust�ceXMLDataModel(GJXDM),allow�ngeasy�mport�ngofmodelcomponentstodes�gnelectron�cdocuments.Soon�tw�llbel�nkedw�ththeab�l�tyto�mportandexportXMLschemaandotherInformat�onExchangePackageDocumentat�on(IEPD)art�factsthatareessent�alto�mplement�ngtheGJXDM.Th�sw�lleventuallyenablejust�ceagenc�estoseamlesslygenerate(and,�fneedbe,re-generate)GJXDMcompl�ant�nformat�onexchangesfromthebus�nessrulesencapsulated�nJIEM,ensur�ngthattheycanberap�dlyadaptedtotheneedsofan�ncreas�nglydynam�cenv�ronment.JIEM�salsobe�ngenhancedtosupporttheexchangeof�nformat�onnotonlyw�th�ndoma�ns(as�nthejust�cedoma�ntoday)butbetweend�fferentdoma�ns,suchasjust�ce,emergencymanagement,transportat�on,and�ntell�gence,�nsupportof emerging organizations such as Fusion Centers.

JIEMwasdevelopedtocollectrequ�rementsfrompract�t�onersforjust�ce�nformat�onshar�ng�n�t�at�ves;specifically to assist justice system leaders in analyzing and documenting ex�st�ng�nformat�onexchangeattheenterpr�selevel,�ndes�gn�ngnewelectron�cexchangeprocessesasapartofan�ntegratedjust�ce�n�t�at�ve,and�nadopt�ngand�mplement�ngnat�onalbus�ness,data,andtechnologymodelstosavet�me,effort,andmoney.Ithelpsjust�ceandpubl�csafetypract�t�onerstoart�culaterequ�rementsthatcanbecommun�catedtotechnolog�stswhodevelopsystemsand�nterfaces.It�sbe�ngexpandedtosupporttheneedsofdeveloperswhow�llbu�ldthesystemsand�nterfacesneededtoshare�ntell�gence�nthelawenforcementandhomelandsecur�tycommun�ty.

JIEMwascreatedbySEARCH,theNat�onalConsort�umforJust�ceInformat�onandStat�st�cs,w�thfund�ngfromtheBureauofJust�ceAss�stance,Office of Justice Programs, U.S. DepartmentofJust�ce.Ithasbeenusedin dozens of integrated justice initiatives in theUn�tedStatesandhasbeenadoptedbytheCanad�angovernment.

Creating a Blueprint for Information SharingOncepract�t�onersunderstandtheenterpr�seandhow�tconductsbus�ness,theycanbeg�ntobu�ldabluepr�ntforamoreeffect�veenterpr�se.Informat�onsharing analysis will expose inefficiencies, redundanc�es,gaps,andopportun�t�es�nthecurrentsystem.Oncethesystem’scurrentoperat�onsareobv�oustodec�s�onmakers,theycandec�dehowtheywanttoworktogether�nthefutureandconstructabluepr�ntor“to-be”plan.Th�sw�llbeacr�t�calact�v�tyforthedevelopmentofanat�onw�desystemof�ntell�gencefus�oncenters.

Common Exchanges Create a Reference Model for Others to UseJIEMusershaveeachcreateddatabasesofthe�rdeta�ledjust�ce�nformat�onexchanges.JIEMwasdes�gnedtoallow administrators to review, analyze, compare,andcontrastexchangesenteredbyalljur�sd�ct�ons.ThatresearchhasledtothedevelopmentoftheJIEMReferenceModel,asetofcommonexchangesfound�nmostlocat�ons.As�m�larprocesscouldbeusedtocreateaun�versalsetofexchangesfor�ntell�genceshar�ng.

W�thareferencemodel,fus�oncentersthatarejustbeg�nn�ngthe�r�nformat�onshar�ngeffortscould�ncorporatethosecommonexchanges,ratherthanstart�ngw�thnoth�ng.Theycould�mportthoseexchanges�ntoanewdatabasethatcanthenbeta�loredtotheun�queneedsofthe�rreg�onorjur�sd�ct�on.Thereferencemodelenablescenterstobu�ldexchanges that reflect their individual bus�nesspract�cesbut�namannerthat�scons�stentw�thnat�onalact�v�t�esand�n�t�at�ves.Th�sessent�alproductofJIEMwasdevelopedbyandforthepract�t�onerswhousethetooltomodelactual,operat�onalexchanges�nthe�rjur�sd�ct�ons.

TheJIEMmethodologyandmodel�ngtoolcanbeusedbyanyenterpr�seseek�ngto analyze its business processes, understand�ts�nformat�onexchange,andreeng�neer�tsbus�nessprocessesbyqu�cklyleverag�ngbestpract�cesand

capitalizing on the experience of other jur�sd�ct�ons.

What Is Included in JIEM?JIEM has five components:

Aconceptualframeworkforunderstand�ngjust�ce�nformat�onexchanges(today),aswellas�nformat�onexchanges�nandbetweenadd�t�onaldoma�ns(suchasemergencymanagement,transportat�on,�mm�grat�on,and�ntell�gence)�nthefuture.Amethodology for analyzing current�nformat�onexchangeandforreeng�neer�ng�nformat�onexchange�nan�nformat�onshar�ngenv�ronment.TheJIEMModelingTool©,aWeb-basedsoftwarepackagetoass�stjust�cesystempract�t�oners�napply�ngJIEM.TheJIEMReferenceModel,asetof�nformat�onexchangedescr�pt�onsthatarecommontomostjur�sd�ct�ons.An�nterfacew�ththeGlobalJusticeXMLDataModelthatallowsusersto�mporttypesandpropert�esd�rectly�ntothe�rJIEMdocuments.

Who Uses JIEM?JIEM�susedbypract�t�onersdur�ngthestrateg�cplann�ngphaseofan�nformat�onshar�ng�n�t�at�veorlaterbydevelopersduring the design of specific interfaces betweenappl�cat�ons.Us�ngJIEM,as�tecanaccompl�shthefollow�ng:

Documentex�st�ngbus�nessprocesses and information flow betweenjust�ceandjust�ce-relatedorganizations with text and graphical outputs.Analyze the effectiveness and economyofex�st�ngpract�ces.Gatherrequ�rementsfor�mproved�nformat�onexchange,creat�ngabluepr�ntforthe�ntegrat�on�n�t�at�ve.Analyze existing data transfers to determ�newh�chprov�dethemostfavorable cost/benefit ratios for automat�on.UseJIEMoutputsas�nputstootherdevelopertoolstoenhancejust�ceappl�cat�onsandtodevelop�nterfacesbetweensystems.

Fusion Center Guidelines—Developing and Sharing Information in a New Era E-3

Access,�mport,andextendnat�onalmodels,suchastheJIEMReferenceModel,theGlobalJust�ceXMLDataModel,andInformat�onExchangePackageDocumentat�on(IEPD).Reg�sterlocallydevelopedIEPDart�facts�nanat�onalrepos�toryforusebyothers.Prov�dedatatosupportnat�onaleffortstodevelopand�mprovemodels,methodolog�es,andtoolstosupport�ntegratedjust�ce.

JIEM BenefitsTheJIEManalys�srequ�restheact�ve�nputofstakeholdersfromallpart�c�pat�ngorganizations. It delivers a number of benefits to local, state, and regional �ntegratedjust�ceeffortsthatgobeyondthe specific products provided by the system,�nclud�ng:

Anopportun�tytobr�ngstafffromd�versebut�nterdependentjust�ced�sc�pl�nestogetherw�thacommon

languageandmethodologytofocusonbus�nesspract�cesofmutualconcernattheenterpr�selevel.Accesstobestpract�cesfromaroundthenat�ontoavo�dre�nvent�ngthewheel.Freesoftwareandsupporttopreservescarceresources;apersonalcomputerandInternetaccessaretheonlyrequ�rementstoaccessJIEM.Part�c�pat�on�nnat�onaleffortsto�mprovethe�ntegrat�onofjust�ce�nformat�onresources.

Issues for ConsiderationWhen analyzing and designing methods forobta�n�ngandd�ssem�nat�ng�ntell�genceelectron�cally,cons�der:

Identifying organizations that will contr�buteandconsume�nformat�onfromthefus�oncenter.Recognizing the political independence of these organizations thatareoperat�onally�nterdependent.

Understand�ngthed�vers�ty�nformatandstructureof�nformat�on�nalloftheseagenc�es.Analyzing the diversity of technology appl�cat�ons,commun�cat�onsprotocols,anddevelopmentenv�ronmentsthatex�st�njust�ce-related organizations.Acknowledg�ngthe�ssuesthatrelatetobus�nessprocessesthatoverlaporganizational boundaries and the needtocoord�natethesepract�cesbetweenent�t�es.Ma�nta�n�ngrelat�onsh�psw�thleadersof these organizations to ensure that�nternalchanges�nbus�nessprocessesdonotd�srupt�nformat�onexchange.Recognizing the organizational, pol�t�cal,legal,andbudgetaryconstra�ntsthatoperateonjust�ceorganizations and drive efforts to �mproveoperat�onswh�leconserv�ngresources.

E-4 Fusion Center Guidelines—Developing and Sharing Information in a New Era

Fusion Center Guidelines—Developing and Sharing Information in a New Era F-1

28CFRPart23—Agu�del�neforlawenforcementagenc�esthatoperatefederallyfundedmult�jur�sd�ct�onalcr�m�nal�ntell�gencesystems(Cr�m�nalIntell�genceGlossary,November2004).

AdministrativeAnalysis—Theprov�s�onofeconom�c,geograph�c,orsoc�al�nformat�ontoadm�n�strators(Gottl�eb,S�ngh,andArenberg,1995,p.13).Theanalys�sofeconom�c,geograph�c,demograph�c,census,orbehav�oraldatato�dent�fytrendsandcond�t�onsusefultoa�dadm�n�strators�nmak�ngpol�cyand/orresourceallocat�ondec�s�ons(Cr�m�nalIntell�genceGlossary,November2004).

AdvancedAuthentication—Definitively �dent�fy�ngusersbeforetheyaccessan organization’s network is a key component�nprotect�ng�nformat�onresources.Startbychoos�nganauthent�cat�onsystemw�thencryptedpasswordprotocols.Beforechoos�nganadvancedauthent�cat�onsystem,�t�s�mperat�vethatdataownersevaluateuseraccess,hardware,andotherrequ�rements(Cr�m�nalIntell�genceGlossary,November2004).

Analysis—Therev�ewof�nformat�onand�tscompar�sontoother�nformat�ontodeterm�nethemean�ngofthedata�nreferencetoacr�m�nal�nvest�gat�onorassessment.(Peterson,1994,p.269)Thatact�v�tywherebymean�ng,actualorsuggested,�sder�vedthroughorganizing and systematically examining d�verse�nformat�onandapply�ng�nduct�veordeduct�velog�cforthepurposesofcr�m�nal�nvest�gat�onorassessment(Cr�m�nalIntell�genceGlossary,November2004).

Association/Link/NetworkAnalysis—Collect�onandanalys�sof�nformat�onthatshowsrelat�onsh�psamongvar�ed�nd�v�dualssuspectedofbe�ng�nvolved�ncr�m�nalact�v�tythatmayprov�de�ns�ght�ntothecr�m�naloperat�onandwh�ch�nvest�gat�vestrateg�esm�ghtworkbest(LawEnforcementAnalyticStandards,November2004).Theentryofcr�t�cal�nvest�gat�veand/orassessmentvar�ables�ntoatwo-ax�smatr�xtoexam�netherelat�onsh�psandpatternsthatemergeasthevar�ablesarecorrelated�nthematr�x(Cr�m�nalIntell�genceGlossary,November2004).

AuditTrails—Theuseofaud�tprocedures(e.g.,track�ngwho�saccess�ngthedataorwhatdatawasaccessed)comb�nedw�thanalys�sofaudit logs and follow-up for unauthorized oranomalousact�v�ty�sessent�alforlong-termsystemsecur�tyandpr�vacy(Cr�m�nalIntell�genceGlossary,November2004).99

Authentication—Theprocessof�dent�fy�ngan�nd�v�dual,usuallybasedonausernameandpassword.Insecur�tysystems,authent�cat�on�sd�st�nctfromauthorization,wh�ch�stheprocessofg�v�ng�nd�v�dualsaccesstosystemobjectsbasedonthe�r�dent�ty.Authent�cat�onmerelyensuresthatthe�nd�v�dual�swhoheorshecla�mstobebutsaysnoth�ngabouttheaccessr�ghtsofthe�nd�v�dual(www.weboped�a.com).

Authorization—Theprocessofgrant�ngordeny�ngaccesstoanetworkresource.Mostcomputersecur�tysystemsarebased on a two-step process. The first stage�sauthent�cat�on,wh�chensures

Appendix FFusion Center Report Glossary

thatauser�swhoheorshecla�mstobe. The second stage is authorization, wh�challowstheuseraccesstovar�ousresourcesbasedontheuser’s�dent�ty(www.weboped�a.com).

Classified Information/Intelligence—Aun�formsystemforclass�fy�ng,safeguard�ng,anddeclass�fy�ngnat�onalsecur�ty�nformat�on,�nclud�ng�nformat�onrelat�ngtodefenseaga�nsttransnat�onalterror�sm,toensurecerta�n�nformat�onbe maintained in confidence in order to protect citizens, U.S. democratic �nst�tut�ons,U.S.homelandsecur�ty,andU.S.�nteract�onsw�thfore�gnnat�onsandent�t�es(Cr�m�nalIntell�genceGlossary,November2004).

Top Secret Classification—Appl�edto�nformat�on,theunauthorized disclosure of which reasonablycouldbeexpectedtocauseexcept�onallygravedamagetothenat�onalsecur�tythattheoriginal classification authority �sableto�dent�fyordescr�be(Execut�veOrder12958,March25,2003).

Secret Classification—Appl�edto information, the unauthorized d�sclosureofwh�chreasonablycouldbeexpectedtocauseser�ousdamagetothenat�onalsecur�tythattheor�g�nalclassification authority is able to �dent�fyordescr�be(Execut�veOrder12958,March25,2003).

Confidential Classification—Appl�edto�nformat�on,theunauthorized disclosure of wh�chreasonablycouldbe

F-2 Fusion Center Guidelines—Developing and Sharing Information in a New Era

expectedtocausedamagetothenat�onalsecur�tythattheor�g�nalclassification authority is able to �dent�fyordescr�be(Execut�veOrder12958,March25,2003).

Collation(ofInformation)—Theprocesswhereby�nformat�on�sassembledtogetherandcomparedcr�t�cally(LawEnforcementAnalyticStandards,November2004).Arev�ewofcollectedandevaluated�nformat�ontodeterm�ne�tssubstant�veappl�cab�l�tytoacaseorproblemat�ssueandplacementofuseful�nformat�on�ntoaformorsystemthatperm�tseasyandrap�daccessandretr�eval(Cr�m�nalIntell�genceGlossary,November2004).

Collection(ofInformation)—Thed�rected,focusedgather�ngof�nformat�onfromallava�lablesources(INTERPOL,1996, p. 9). The identification, location, andrecord�ng/stor�ngof�nformat�on,typ�callyfromanor�g�nalsourceandus�ngbothhumanandtechnolog�calmeans,for�nput�ntothe�ntell�gencecycleforthe purpose of meeting a defined tactical orstrateg�c�ntell�gencegoal(Cr�m�nalIntell�genceGlossary,November2004).

CommodityFlowAnalysis—Graph�cdep�ct�onsanddescr�pt�onsoftransact�ons,sh�pments,andd�str�but�onofcontrabandgoodsandmoneyder�vedfromunlawfulact�v�t�es�nordertoa�d�nthed�srupt�onoftheunlawfulact�v�t�esandapprehendthosepersons�nvolved�nallaspectsoftheunlawfulact�v�t�es(Cr�m�nalIntell�genceGlossary,November2004).

ConceptofOperations(CONOPS)—Astatementoutl�n�nghowanoperat�onororganization will achieve its mission and goals.Theconcept�sdes�gnedtog�veanoverallp�ctureoftheoperat�on.

ContinuityofOperationsPlan(COOP)—A plan that specifies the act�v�t�esof�nd�v�dualdepartmentsandagenc�esandthe�rsubcompartmentstoensurethatthe�ressent�alfunct�onsareperformed�ntheeventofanemergencyord�saster.

Coordination—Theprocessof�nterrelat�ngworkfunct�ons,respons�b�l�t�es,dut�es,resources,and�n�t�at�vesd�rectedtowardgoalatta�nment(Cr�m�nalIntell�genceGlossary,November2004).

Crime-PatternAnalysis—Aprocessthatlooksforl�nksbetweencr�mesandother�nc�dentstoreveals�m�lar�t�esandd�fferencesthatcanbeusedtohelppred�ctandpreventfuturecr�m�nalact�v�ty(LawEnforcementAnalyticStandards,November2004).Anassessmentofthenature,extent,andchangesofcr�mebasedonthecharacter�st�csofthecr�m�nal�nc�dent,�nclud�ngmodusoperand�,temporal,andgeograph�cvar�ables(Cr�m�nalIntell�genceGlossary,November2004).

CriminalInvestigativeAnalysis—Theuseofcomponentsofacr�meand/orthephys�calandpsycholog�calattr�butesofacr�m�naltoascerta�nthe�dent�tyofthecr�m�nal(Peterson,1994,p.42).Ananalyt�cprocessthatstud�esser�aloffenders,v�ct�ms,andcr�mescenes�nordertoassesscharacter�st�csandbehav�orsofoffender(s)w�ththe�ntentto identify or aid in the identification of theoffender(s)(Cr�m�nalIntell�genceGlossary,November2004).

CriticalInfrastructureResiliency(CIR)—Theab�l�tyofcr�t�cal�nfrastructuresystemstoma�nta�norrap�dlyrecoveressent�alfunct�onsandstructure�nthefaceof�nternalandexternalchangeandtodegradegracefully�ftheymust.(ScienceMagazineandtheReportoftheCr�t�calInfrastructureTaskForce,January2006,bytheU.S.DepartmentofHomelandSecur�ty’sHomelandSecur�tyAdv�soryCounc�l.)

DatabaseIntegrity—Itmaybeadv�sable,depend�ngonthesens�t�v�tyofthedata,to utilize multilevel, secure database productstoensurethesafetyofdata.Inadd�t�on,l�m�t�ngdataaccessv�adatabaseeng�nepasswordsord�g�talcertificates separate from the operating systempasswordaddsanotherlayerofsecur�ty(Cr�m�nalIntell�genceGlossary,November2004).

Deconfliction—Theprocessorsystemusedtodeterm�newhethermult�plelawenforcementagenc�esare�nvest�gat�ngthesamepersonorcr�meandwh�chprovides notification to each agency �nvolvedoftheshared�nterest�nthecase,aswellasprov�d�ngcontact�nformat�on.Th�s�san�nformat�onand�ntell�genceshar�ngprocessthatseeksto minimize conflicts between agencies and maximize the effectiveness of an �nvest�gat�on(Cr�m�nalIntell�genceGlossary,November2004).

Dissemination(ofIntelligence)—Thereleaseof�nformat�on,usuallyundercerta�nprotocols(Peterson,1994,p.271).Theprocessofeffect�velyd�str�but�nganalyzed intelligence utilizing certain protocols�nthemostappropr�ateformattothose�nneedofthe�nformat�ontofac�l�tatethe�raccompl�shmentoforganizational goals (Criminal Intelligence Glossary,November2004).

Encryption—Theprocessofencod�nginformation so that unauthorized �nd�v�dualsw�llbeunabletoread,understand,orusethe�nformat�on.Apasswordorkey�srequ�redtodecode(decrypt)the�nformat�onback�nto�tsor�g�nal,useableform.

Evaluation(ofInformation)—Anassessmentoftherel�ab�l�tyofthesourceandaccuracyoftherawdata(Morr�sandFrost,1983,p.4).All�nformat�oncollectedforthe�ntell�gencecycle�srev�ewedfor�tsqual�ty,w�thanassessmentoftheval�d�tyandrel�ab�l�tyofthe�nformat�on(Cr�m�nalIntell�genceGlossary,November2004).

EventFlowAnalysis—Graph�cdep�ct�onsanddescr�pt�onsof�nc�dents,behav�ors,andpeople�nvolved�nanunlawfulevent,�ntendedtohelpunderstandhowaneventoccurredasatooltoa�d�nprosecut�on,aswellasprevent�onoffutureunlawfulevents(Cr�m�nalIntell�genceGlossary,November2004).Thecomp�lat�onandanalys�sofdatarelat�ngtoeventsastheyhaveoccurredovert�meallowtheanalysttodrawconclus�onsandrecommendat�onsbasedontheanalys�s(Peterson,1994).

FinancialAnalysis—Arev�ewandanalyses of financial data to ascertain thepresenceofcr�m�nalact�v�ty.Itcan�ncludebankrecordanalys�s,networthanalysis, financial profiles, source and applications of funds, financial statement analys�s,and/orBankSecrecyActrecordanalys�s.Itcanalsoshowdest�nat�onsofproceedsofcr�meandsupportprosecut�ons(LawEnforcementAnalyticStandards,November2004).

FlowAnalysis—Therev�ewofrawdatatodeterm�nethesequenceofeventsor interactions that may reflect criminal act�v�ty.Itcan�ncludet�mel�nes,eventflow analysis, commodity flow analysis, and activity flow analysis; it may show m�ss�ngact�onsoreventsthatneed

Fusion Center Guidelines—Developing and Sharing Information in a New Era F-3

further�nvest�gat�on(LawEnforcementAnalyticStandards,November2004).

FreedomofInformationAct(FOIA)—TheFreedomofInformat�onAct,5U.S.C.552,enacted�n1966,statutor�lyprov�desthatanypersonhasar�ght,enforceable�ncourt,toaccessfederalagencyrecords,excepttotheextentthatsuchrecords(orport�onsthereof)areprotectedfromd�sclosurebyoneofn�neexempt�ons(Cr�m�nalIntell�genceGlossary,November2004).

FusionCenter—Acollaborat�veeffortoftwoormoreagenc�esthatprov�deresources,expert�se,and/or�nformat�onto the center with the goal of maximizing theab�l�tytodetect,prevent,apprehend,andrespondtocr�m�nalandterror�smact�v�ty(RecommendedFus�onCenterLawEnforcementIntell�genceStandards,March2005).

InferenceDevelopment—Draw�ngconclus�onsbasedonfacts(Peterson,1994,p.48).Thecreat�onofaprobab�l�st�cconclus�on,est�mate,orpred�ct�onrelatedtoan�ntell�gencetargetbasedupontheuseof�nduct�veordeduct�velog�c�ntheanalys�sofraw�nformat�onrelatedtothetarget(Cr�m�nalIntell�genceGlossary,November2004).

Intelligence(Criminal)—Theproductofsystemat�cgather�ng,evaluat�on,andsynthes�sofrawdataon�nd�v�dualsoract�v�t�essuspectedofbe�ng,orknowntobe,cr�m�nal�nnature.Intell�gence�sinformation that has been analyzed to determ�ne�tsmean�ngandrelevance.Information is compiled, analyzed, and/or d�ssem�nated�nanefforttoant�c�pate,prevent,ormon�torcr�m�nalact�v�ty(NCISP,October2003).Theproductoftheanalys�sofraw�nformat�onrelatedtocr�mesorcr�mepatternsw�threspecttoan identifiable person or group of persons �nanefforttoant�c�pate,prevent,ormon�torposs�blecr�m�nalact�v�ty(Cr�m�nalIntell�genceGlossary,November2004).

IntelligenceAssessment—Acomprehens�vereportonan�ntell�gence�ssuerelatedtocr�m�nalornat�onalsecur�tythreatsava�labletolocal,state,tr�bal,andfederallawenforcementagenc�es(Cr�m�nalIntell�genceGlossary,November2004).

IntelligenceBulletins—A finished �ntell�genceproduct�nart�cleformatthatdescr�besnewdevelopmentsand

evolv�ngtrends.Thebullet�nsaretypically sensitive but unclassified and ava�lableford�str�but�ontolocal,state,tr�bal,andfederallawenforcement.

IntelligenceInformationReports(IIR)—Raw,unevaluated�ntell�genceconcern�ng“per�shable”ort�me-l�m�ted�nformat�onconcern�ngcr�m�nalornat�onalsecur�ty�ssues.Wh�lethefullIIRmaybeclassified, local, state, and tribal law enforcementagenc�esw�llhaveaccessto sensitive but unclassified information �nthereportunderthetearl�ne(Cr�m�nalIntell�genceGlossary,November2004).

Intelligence-LedPolicing—Thecollect�onandanalys�sof�nformat�ontoproducean�ntell�genceendproductdes�gnedto�nformpol�cedec�s�onmak�ngatboththetact�calandstrateg�clevels(NCISP,October2003).Thedynam�cuseof�ntell�gencetogu�deoperat�onallawenforcementact�v�t�estotargets,commod�t�es,orthreatsforbothtact�calresponsesandstrateg�cdec�s�onmak�ngforresourceallocat�onand/orstrateg�cresponses(Cr�m�nalIntell�genceGlossary,November2004).

IntelligenceProcess(Cycle)—Plann�ngandd�rect�on,collect�on,process�ngandcollat�ng,analys�sandproduct�ons,andd�ssem�nat�on(Morehouse,2001,p. 8). An organized process by which �nformat�on�sgathered,assessed,anddistributed in order to fulfill the goals of the�ntell�gencefunct�on—�t�samethodofperform�nganalyt�cact�v�t�esandplac�ngtheanalys�s�nauseableform(Cr�m�nalIntell�genceGlossary,November2004).

IntelligenceProducts—Reportsordocumentsthatconta�nassessments,forecasts,assoc�at�ons,l�nks,andotheroutputsfromtheanalyt�cprocessthatmaybed�ssem�natedforusebylawenforcementagenc�esforprevent�onofcr�mes,targetharden�ng,apprehens�onofoffenders,andprosecut�on(Cr�m�nalIntell�genceGlossary,November2004).

National Criminal Intelligence Sharing Plan(NCISP)—Aformal�ntell�genceshar�ng�n�t�at�ve,supportedbytheU.S.DepartmentofJust�cethatsecurelyl�nkslocal,state,tr�bal,andfederallawenforcementagenc�es,fac�l�tat�ngtheexchangeofcr�t�cal�ntell�gence.ThePlanconta�nsmodelpol�c�esandstandardsand�sabluepr�ntforlawenforcementadm�n�stratorstofollowwhenenhanc�ngorbu�ld�ngan�ntell�gencefunct�on.It

descr�besanat�onw�decommun�cat�onscapab�l�tythatw�lll�nkalllevelsoflawenforcement personnel, including officers onthestreet,�ntell�genceanalysts,un�tcommanders,andpol�ceexecut�ves(Cr�m�nalIntell�genceGlossary,November2004).

NeedtoKnow—Asaresultofjurisdictional, organizational, or operat�onalnecess�t�es,�ntell�genceor�nformat�on�sd�ssem�natedtofurtheran�nvest�gat�on(Cr�m�nalIntell�genceGlossary,November2004).

OperationalAnalysis—Ident�fy�ngthesal�entfeatures,suchasgroupsofor�nd�v�dualcr�m�nals’relevantprem�ses,contactpo�nts,andmethodsofcommun�cat�on(Europol,200,Insert3).Anassessmentofthemethodologyofacriminal enterprise or terrorist organization thatdep�ctshowtheenterpr�seperforms�tsact�v�t�es,�nclud�ngcommun�cat�ons,ph�losophy,compensat�on,secur�ty,andothervar�ablesthatareessent�alfortheenterpr�setoex�st(Cr�m�nalIntell�genceGlossary,November2004).

PerimeterSecurity—Routers, firewalls, and�ntrus�ondetect�onsystemsshouldbe�mplementedtot�ghtlycontrolaccesstonetworksfromouts�desources.Routersand firewalls filter and restrict traffic based upon very specific access control dec�s�onsmadebythenetworkoperators,thereby limiting the types of unauthorized act�v�t�esonanetwork(Cr�m�nalIntell�genceGlossary,November2004).

PhysicalSecurity—Systemandnetworkadm�n�stratorsshouldt�ghtlycontrolphys�calaccesstocomputerandnetworkhardware. Only authorized members ofthetechn�calstaffshouldbeallowedaccesstosystems(Cr�m�nalIntell�genceGlossary,November2004).

Planning—Thepreparat�onforfuturesituations, estimating organizational demandsandresourcesneededtoattendtothoses�tuat�ons,and�n�t�at�ngstrateg�estorespondtothoses�tuat�ons(Cr�m�nalIntell�genceGlossary,November2004).

Privacy(ofInformation)—Theassurancethatlegalandconst�tut�onalrestr�ct�onsonthecollect�on,ma�ntenance,use,andd�sclosureofpersonally identifiable information will be adheredtobycr�m�naljust�ceagenc�es,w�thuseofsuch�nformat�ontobestr�ctly

F-4 Fusion Center Guidelines—Developing and Sharing Information in a New Era

l�m�tedtoc�rcumstanceswherelegalprocessperm�tsuseofthepersonallyidentifiable information (Criminal Intell�genceGlossary,November2004).

Privacy(Personal)—Theassurancethatlegalandconst�tut�onalrestr�ct�onsonthecollect�on,ma�ntenance,use,andd�sclosureofbehav�orsofan�nd�v�dual,�nclud�ngh�s/hercommun�cat�ons,assoc�at�ons,andtransact�ons,w�llbeadheredtobycr�m�naljust�ceagenc�es,w�thuseofsuch�nformat�ontobestr�ctlyl�m�tedtoc�rcumstanceswherelegal process authorizes surveillance and�nvest�gat�on(Cr�m�nalIntell�genceGlossary,November2004).

Profile/Criminal Profile—An�nvest�gat�vetechn�quebywh�chtoidentify and define the major personality andbehav�oralcharacter�st�csofthecr�m�naloffenderbaseduponananalys�softhecr�me(s)heorshehascomm�tted(Cr�m�nalIntell�genceGlossary,November2004).

Reliability—Asksthequest�on,“Isthesourceofthe�nformat�oncons�stentanddependable?”(Cr�m�nalIntell�genceGlossary,November2004)

Requirement—Aval�dated�ntell�gence�nformat�onneed(IIN)subm�ttedtoaddressan�ntell�gencegap.Requ�rementscanbe“stand�ng”(normallyval�dformonthsoryears)or“adhoc”(processedastheyareidentified, normally outside of planned, per�od�crequ�rementsdevelopmentandprioritization cycles) (FBI Intelligence Requ�rementsandCollect�onManagementProcess,August2003,p.9).

RighttoKnow—Basedonhav�nglegalauthority, one’s official position, legal mandates, or official agreements, allowing the�nd�v�dualtorece�ve�ntell�gencereports(Cr�m�nalIntell�genceGlossary,November2004).

RiskAssessment—Ananalys�sofatarget,�llegalcommod�ty,orv�ct�mto�dent�fytheprobab�l�tyofbe�ngattackedor criminally compromised and to analyze vulnerab�l�t�es.

Sensitive But Unclassified (SBU) Information—Informat�onthathasnot been classified by a federal law enforcementagencywh�chperta�nstosignificant law enforcement cases under �nvest�gat�onandcr�m�nal�ntell�gence

reportsthatrequ�red�ssem�nat�oncr�ter�atoonlythosepersonsnecessarytofurtherthe�nvest�gat�onortopreventacr�meorterror�stact(Cr�m�nalIntell�genceGlossary,November2004).

SensitiveCompartmentedInformation(SCI)—Classified information concerning order�vedfrom�ntell�gencesources,methods,oranalyt�calprocessesthat�srequ�redtobehandledw�th�nformalaccesscontrolsystemsestabl�shedbythed�rectoroftheCentralIntell�genceAgency(Cr�m�nalIntell�genceGlossary,November2004).

SensitiveCompartmentedInformationFacility(SCIF)—Anaccred�tedarea,room,groupofrooms,bu�ld�ngs,oran�nstallat�onwhereSCImaybestored,used,d�scussed,and/orprocessed(Cr�m�nalIntell�genceGlossary,November2004).

SpatialAnalysis—Theprocessofus�ngageograph�c�nformat�onsystem�ncomb�nat�onw�thcr�me-analys�stechn�questoassessthegeograph�ccontextofoffenders,cr�mes,andotherlawenforcementact�v�ty(Cr�m�nalIntell�genceGlossary,November2004).

StrategicIntelligence—Mostoftenrelatedtothestructureandmovementoforganized criminal elements, patterns of cr�m�nalact�v�ty,cr�m�naltrendproject�ons,orproject�veplann�ng(LawEnforcementAnalyticStandards,November2004).Anassessmentoftargetedcr�mepatterns,crime trends, criminal organizations, and/orunlawfulcommod�tytransact�onsforpurposesofplann�ng,dec�s�onmak�ng,andresourceallocat�on;thefocusedexam�nat�onofun�que,pervas�ve,and/orcomplexcr�meproblems(Cr�m�nalIntell�genceGlossary,November2004).

TacticalIntelligence—Informat�onregarding a specific criminal event that canbeused�mmed�atelybyoperat�onalun�tstofurtheracr�m�nal�nvest�gat�on,plantact�caloperat�ons,andprov�deforofficer safety (LawEnforcementAnalyticStandards,November2004).Evaluated�nformat�ononwh�ch�mmed�ateenforcementact�oncanbebased;intelligence activity focused specifically ondevelop�nganact�vecase(Cr�m�nalIntell�genceGlossary,November2004).

Terrorism—Premed�tated,pol�t�callymot�vatedv�olenceperpetratedaga�nstnoncombatanttargetsbysubnat�onal

groupsorclandest�neagents,usuallyintended to influence an audience (Title 22oftheUn�tedStatesCode,Sect�on2656f[d]).

TerrorismInformation—All�nformat�on,whethercollected,produced,ord�str�butedby�ntell�gence,lawenforcement,m�l�tary,homelandsecur�ty,orotherUn�tedStatesgovernmentact�v�t�es,relat�ngto1)theex�stence,organization, capabilities, plans, intentions, vulnerability, means of finance ormater�alsupport,oract�v�t�esoffore�gnor�nternat�onalterror�stgroupsor�nd�v�duals,orofdomest�cgroupsor�nd�v�duals�nvolved�ntransnat�onalterror�sm;2)threatsposedbysuchgroupsor�nd�v�dualstotheUn�tedStates,U.S. citizens, or U.S. interests or to those ofothernat�ons;3)commun�cat�onsoforbysuchgroupsor�nd�v�duals;or4)�nformat�onrelat�ngtogroupsor�nd�v�dualsreasonablybel�evedtobeass�st�ngorassoc�atedw�thsuchgroupsor�nd�v�duals(Execut�veOrder13356).

ThreatAssessment—Astrateg�cdocumentwh�chlooksatagroup’spropens�tyforv�olenceorcr�m�nal�tyortheposs�bleoccurrenceofacr�m�nalact�v�ty�nacerta�nt�meorplace(Peterson,1994,pp.56-57).Anassessmentofacr�m�nalorterror�stpresencew�th�najur�sd�ct�on�ntegratedw�thanassessmentofpotent�altargetsofthatpresenceandastatementofprobab�l�tythatthecr�m�nalorterror�stw�llcomm�tanunlawfulact.Theassessmentfocusesonthecr�m�nal’sorterror�st’sopportun�ty,capab�l�ty,andwillingness to fulfill the threat (Criminal Intell�genceGlossary,November2004).

Validity—Asksthequest�on,“Doesthe�nformat�onactuallyrepresentwhatwebel�eve�trepresents?”(Cr�m�nalIntell�genceGlossary,November2004).

VulnerabilityAssessment—Astrateg�cdocumentwh�chv�ewstheweaknesses�nasystemthatm�ghtbeexplo�tedbyacr�m�nalendeavor(NCISP,October2003).Anassessmentofposs�blecr�m�nalorterror�stgrouptargetsw�th�najur�sd�ct�on�ntegratedw�thanassessmentofthetarget’sweaknesses,l�kel�hoodofbe�ngattacked,andab�l�tytow�thstandanattack(Cr�m�nalIntell�genceGlossary,November2004).

Fusion Center Guidelines—Developing and Sharing Information in a New Era G-1

ACTIC Arizona Counter Terrorism Information Center

ATIX AutomatedTrustedInformat�onExchange

CAP CommonAlert�ngProtocol

CDC CentersforD�seaseControlandPrevent�on

CFR CodeofFederalRegulat�ons

CICC Cr�m�nalIntell�genceCoord�nat�ngCounc�l

CIIAct Cr�t�calInfrastructureInformat�onAct

CITCS Cr�m�nalIntell�genceTra�n�ngCoord�nat�onStrategy

CONOPS ConceptofOperat�ons

COOP Cont�nu�tyofOperat�onsPlan

CTTWG Counter-Terror�smTra�n�ngCoord�nat�onWork�ngGroup

DHS U.S.DepartmentofHomelandSecur�ty

DISA DefenseInformat�onSystemsAgency

DOJ U.S.DepartmentofJust�ce

EPIC ElPasoIntell�genceCenter

FAQ FrequentlyAskedQuest�ons

FBI FederalBureauofInvest�gat�on

FEMA FederalEmergencyManagementAgency

FinCEN F�nanc�alCr�mesEnforcementNetwork

FOIA FreedomofInformat�onAct

FOUO For Official Use Only

GISAC Georg�aInformat�onShar�ngandAnalys�sCenter

GISWG GlobalInfrastructure/StandardsWork�ngGroup

GIWG GlobalIntell�genceWork�ngGroup

Global GlobalJust�ceInformat�onShar�ngIn�t�at�ve

GlobalJXDM GlobalJust�ceXMLDataModel

GTRI Georg�aTechResearchInst�tute

GXSTF GlobalXMLStructureTaskForce

HIDTA High Intensity Drug Trafficking Areas

HIFCA H�ghIntens�tyF�nanc�alCr�meAreas

HSAC HomelandSecur�tyAdv�soryCounc�l

HSIN HomelandSecur�tyInformat�onNetwork

HSOC HomelandSecur�tyOperat�onsCenter

HSPD HomelandSecur�tyPres�dent�alD�rect�ve

IACA Internat�onalAssoc�at�onofCr�meAnalysts

IACP Internat�onalAssoc�at�onofCh�efsofPol�ce

IADLEST Internat�onalAssoc�at�onofD�rectorsofLawEnforcementStandardsandTra�n�ng

IALEIA Internat�onalAssoc�at�onofLawEnforcementIntell�genceAnalysts

ICE U.S.Imm�grat�onandCustomsEnforcement

ICSIS IntegratedConvergenceSupportInformat�onSystem

IJIS IntegratedJust�ceInformat�onSystem

INTERPOL International Criminal Police Organization

JICC Just�ceIntell�genceCoord�nat�ngCounc�l

LEIN LawEnforcementIntell�genceNetwork

LEIU LawEnforcementIntell�genceUn�t

LEO LawEnforcementOnl�ne

LES LawEnforcementSens�t�ve

MOU MemorandumofUnderstand�ng

NCISP NationalCriminalIntelligenceSharingPlan

NCJA Nat�onalCr�m�nalJust�ceAssoc�at�on

NCSD Nat�onalCyberSecur�tyD�v�s�on

NDA Non-D�sclosureAgreement

NDIC Nat�onalDrugInformat�onCenter

NIST Nat�onalInst�tuteofStandardsandTechnology

Appendix GAcronyms

G-2 Fusion Center Guidelines—Developing and Sharing Information in a New Era

Nlets TheInternat�onalJust�ceandPubl�cSafetyInformat�onShar�ngNetwork

NW3C Nat�onalWh�teCollarCr�meCenter

OASIS Organization for the Advancement of StructuredInformat�onStandards

OEP OccupantEmergencyPlan

OJP Office of Justice Programs

RCIC RocklandCountyIntell�genceCenter

RISS Reg�onalInformat�onShar�ngSystems®

SARA Superfund Amendments and Reauthorization Act

SBU Sensitive But Unclassified

SCI Sens�t�veCompartmentedInformat�on

SCIF Sens�t�veCompartmentedInformat�onFac�l�ty

SME Subject-MatterExpert

SOA Serv�ce-Or�entedArch�tecture

STTAC StateTerror�smThreatAssessmentCenter(Cal�forn�a)

STIC Statew�deTerror�smIntell�genceCenter(Ill�no�s)

TRS Terror�smResearchSpec�al�sts

UNYRIC UpstateNewYorkReg�onalIntell�genceCenter

US-CERT Un�tedStatesComputerEmergencyRead�nessTeam

USP3 Un�tedStatesPubl�c-Pr�vatePartnersh�p(formerlyDHS’sHSIN-CI)

VICAP V�olentCr�m�nalApprehens�onProgram

XML Extens�bleMarkupLanguage



in a New Era



Private Sector

United States Department of Justice

A companion CD has been developed in conjunction with the Fusion Center Guidelines report. This CD contains sample policies, checklists, resource documents, and links to Web sites that are referenced throughout the report. For copies of the resource CD, contact DOJ’s Global at (850) 385-0600.

The fusion center resources are also available at DOJ’s Global Web site, www.it.ojp.gov/fusioncenter, DHS’s Web site, and the Homeland Security Information Network (HSIN).

Issued August 2006

For more information about the Fusion Center Guidelines, contact DOJ’s Global at (850) 385-0600.

For more information about DOJ’s initiatives, go to

www.it.ojp.gov.

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