National Dragnet Is a Click Away

Law enforcement and federal security authorities said these developments, along with a new willingness by police to share information, hold out the promise of fulfilling post-Sept. 11, 2001, mandates to connect the dots and root out signs of threats before attacks can occur.

"A guy that's got a flat tire outside a nuclear facility in one location means nothing," said Thomas E. Bush III, the FBI's assistant director of the criminal justice information services division. "Run the guy and he's had a flat tire outside of five nuclear facilities and you have a clue."

In a paper called "Intelligence-Led Policing: The New Intelligence Architecture," law enforcement authorities working with the Justice Department said officers " 'on the beat' are an excellent resource for gathering information on all kinds of potential threats and vulnerabilities."

"Despite the many definitions of 'intelligence' that have been promulgated over the years, the simplest and clearest of these is 'information plus analysis equals intelligence,' " the paper said.

Efforts by federal authorities to create national networks have had mixed success.

The federal government has long successfully operated programs such as the Regional Information Sharing System, which enables law enforcement agencies to communicate, and the National Crime Information Center, an index of criminal justice information that police across the country can access. Though successful, those systems offer a relatively limited look at existing records.

A Department of Homeland Security project to expand sharing substantially, called the Information Network, has been bedeviled by cost overruns, poor planning and ambivalence on the part of local and state authorities, according to the Government Accountability Office. Almost every state has established organizations known as intelligence fusion centers to collect, analyze and share information about possible leads. But many of those centers are underfunded and undermanned, and some of the analysts are not properly trained, the GAO said last year.

Federal authorities have high hopes for the N-DEx system, which is to begin phasing in as early as this month. They envision a time when N-DEx, developed by Raytheon for $85 million, will enable 200,000 state and local investigators, as well as federal counterterrorism investigators, to search across millions of police reports, in some 15,000 state and local agencies, with a few clicks of a computer mouse. Those reports will include names of suspects, associates, victims, persons of interest, witnesses and any other person named in an incident, arrest, booking, parole or probation report.

The system will be accessible to federal law-enforcement agencies, such as the FBI, and state fusion centers. Intelligence analysts at the National Counterterrorism Center and FBI's Foreign Terrorist Tracking Center likely will have access to the system as well.

"The goal is to create a one-stop shop for criminal justice information," the FBI's Bush said.

In the meantime, local and state authorities have charged ahead with their own networks, sometimes called "nodes," and begun stitching them together through legal agreements and electronic links.

At least 1,550 jurisdictions across the country use Coplink systems, through some three dozen nodes. That's a huge increase from 2002, when Coplink was first available commercially.