# [Congressional Budget Submission]{.underline}

# U. S. Department of Justice

# 

# FY 2009 Performance Budget

# 

# Justice Information Sharing Technology

# (JIST)

# Table of Contents

Page No.

**I.
Overview..**.........................................................................................................3

**II. Summary of Program Changes
(none)**..................\.................................................5

**III. Appropriations Language and Analysis of Appropriations
Language**..................\......6

IV\. Decision Unit Justification

A. Justice Information Sharing
Technology..................................................................7

1\. Program Description

2\. Performance Tables

3\. Performance, Resources, and Strategies

V. E-Gov Initiative \........15

VII\. Exhibits

A.  Organizational Chart

> B. Summary of Requirements
>
> C. Program Increases by Decision Unit -- **Not Applicable**

D.  Resources by DOJ Strategic Goal/Objective

E.  Justification for Base Adjustments

F.  Crosswalk of 2007 Availability

G.  Crosswalk of 2008 Availability

H.  Summary of Reimbursable Resources

I.  Detail of Permanent Positions by Category

J.  Financial Analysis of Program Increases/Offsets -- **Not
    Applicable**

K.  Summary of Requirements by Grade

L.  Summary of Requirements by Object Class

M.  Status of Congressionally Requested Studies, Reports, and
    Evaluations -- **Not Applicable**

I. Overview for Justice Information Sharing Technology (JIST)

The FY2009 Justice Information Sharing Technology (JIST) budget will
provide for a total of 71 positions and \$93,868,000. The JIST fund was
established in FY2006 to provide resources for corporate investments in
Information Technology (IT). As a centralized fund under the control of
the DOJ CIO, it ensures that investments in information sharing
technology and infrastructure enhancements are well planned and aligned
with the Department\'s overall IT strategy and enterprise architecture.

The JIST budget includes \$21,000,000 funding for the Unified Financial
Management System (UFMS). The UFMS will allow the DOJ to streamline and
standardize business processes and procedures across all components,
providing secure, accurate, timely, and useful financial and procurement
data to program managers across the Department, and produce component-
and Department-level financial statements.

**Summary**

The JIST account in FY 2009 supports the continued development and
implementation of the Law Enforcement Information Sharing Program
(LEISP), Litigation Case Management System (LCMS), Secure Identity
Management & Communication (SIMC), and Unified Financial Management
System (UFMS). The LEISP continues to be a Department priority, with
JIST funds supporting the Department level management of this effort.

The LCMS project is at a critical stage in its development lifecycle.
Implementation is planned for the Executive Officer for United States
Attorneys and the 94 United States Attorney Offices in FY 2009. The JIST
account will support the rollout of the LCMS for the six other major
litigation divisions, starting in FY 2009.

The JIST fund continues to support the operation and limited deployment
of the Justice Consolidated Office Network (JCON) and Joint Automated
Booking System (JABS).

**Linkage to Strategic Goals**

Several aspects of the JIST budget are directly related to the primary
DOJ strategic goal: Protecting America from the threat of terrorism.

The Department's Law Enforcement Information Sharing Program (LEISP)
represents a strategic approach to sharing data with other DOJ
components, other federal agencies and partners at the state, local and
tribal level. The program aims to reduce crime and to prevent terrorism
by providing an overall framework and the technological means for law
enforcement entities to share information quickly and effectively. In
addition the JIST budget will support the development and implementation
of LEISP-related database application systems that will enable state,
local, and Federal law enforcement agencies nationwide to collect,
share, and analyze law enforcement information on criminal activities
and separately, in a more tightly controlled environment, to share and
analyze sensitive intelligence data. JIST resources are also integral to
protecting America from terrorism by providing for the planning,
engineering, acquisition and implementation of technology that will
secure data communications, including an enterprise-wide seamless
infrastructure for electronically sharing, processing, and storing
information classified at the Secret (S), Top Secret (TS), and Sensitive
Compartmented Information (SCI) levels.

Other aspects of the JIST budget will provide Overall Mission support to
enable the achievement of all DOJ strategic goals. JIST will provide for
ongoing infrastructure investments including JCON, JABS and SIMC. The
JCON Program is an evolving infrastructure that provides an expanding
common office automation platform upon which 16 of DOJ litigating,
management, and law enforcement components operate their
mission-critical applications. JIST funding will be used to upgrade
component systems that have passed the end of their life-cycle and to
upgrade communication and collaboration capabilities across DOJ. The
SIMC Program provides for credentialing and authenticating persons using
facilities and computer systems as well as providing security services
such as encryption for intra- and inter-agency communications across all
levels of national security information.

The SIMC program will seek to develop a Department-wide Enterprise
Directory that will enable better management and controls for all
systems on DOJ networks.

These and other infrastructure investments will enable the achievement
of all DOJ strategic goals.

**II. Summary of Program Changes**

There are no program changes in JIST in FY 2009.

**III. Appropriations Language and Analysis of Appropriations Language**

**Appropriations Language**

For necessary expenses for information sharing technology, including
planning, development, deployment, and Department direction,
\$93,868,000 to remain until expended of which not less than
\$21,000,000 is for the unified financial management system.

**Analysis of Appropriations Language**

No substantive changes proposed.

**IV. Decision Unit Justification**

**A. Justice Information Sharing Technology -- (JIST)**

  ------------------------------------------------- ------- ------ ----------
  JIST - TOTAL                                      Perm.   FTE    Amount
                                                    Pos.           

  2007 Enacted with Rescissions                     71      71     123,559

  Transfer -- R-Dex/N-Dex base to FBI                              (13,000)

  Adjustment to Base and Technical Adjustments                     (10,059)

  2008 President's Request                          71      71     100,500

                                                                   

  2008 Enacted (with Rescissions and Supplementals) 71      71     80,540

  Adjustments to Base and Technical Adjustments                    13,328

  2009 Current Services                             71      71     93,868

  2009 Program Increases                            0       0      0

  2009 Request                                      71      71     93,868

  Total Change 2008-2009                            0       0      13,328
  ------------------------------------------------- ------- ------ ----------

1\. Program Description

JIST provides for the performance of the certain Departmental
responsibilities assigned to the Chief Information Officer by the
Clinger-Cohen Act of 1996, including the implementation of a capital
planning and investment control process, the development and maintenance
of an information technology architecture, the establishment of IT
performance measures, IT security programs and the development
strategies for improving information resources management capabilities.
In addition, it provides for IT investments that can be most effectively
and efficiently designed, engineered, deployed, and implemented through
corporate direction.

The LEISP is aimed at transforming the way DOJ shares law enforcement
information with its local, state, tribal, and other federal partners.
LEISP is intended to support multi-jurisdictional, multi-directional
relationships and to promote a cultural change within DOJ around the
practice of information sharing. LEISP is a broad-reaching program, not
a new information system. In order to achieve its vision of a culture of
\"need to share\" rather than \"need to know\", LEISP will:

-   Leverage existing system capabilities, architectural components, and
    business services where plausible;

-   Realign other DOJ initiatives where required in order to ensure that
    every system being built focuses on information sharing
    capabilities;

-   Redirect the management and execution of projects where performance
    failures or weaknesses have been identified; and

-   Ensure that scarce resources are directed at the most important
    strategic goals of the agency.

The LEISP is the critical DOJ-wide initiative to facilitate the sharing
of what law enforcement knows about terrorism, criminal activity, and
threats to public safety. LEISP will help to implement the information
technology tools needed to facilitate timely, appropriate and secure
sharing of information across the law enforcement community, and will
coordinate federal information sharing initiatives with those ongoing at
state, tribal, and local law enforcement agencies.

JIST provides for corporate investments in secure communications.
Interconnected information technology systems and networks are critical
to achieving the Department\'s mission. However, this widespread
interconnectivity also poses new risks. Our growing dependency on these
systems for law enforcement and national security purposes has increased
the potential damage resulting from malicious attacks that undermine and
disrupt services or expose sensitive information to misuse. Protecting
our IT systems and networks, and safeguarding the information they
store, process, and transmit, is a cornerstone of the Department\'s IT
strategy.

Information security is an indispensable function and a prerequisite to
meeting mission goals. To these ends JIST provides for investments in a
Public Key Infrastructure (PKI) and in an enterprise-wide infrastructure
for the transmission of classified information. The investment in PKI
will enable secure communications and information sharing across
component organizational boundaries, provide a strong department-wide
authentication mechanism, support the government-wide E-Authentication
initiative, and establish a framework for communications and sharing
with other federal, state and local agencies. The investment in a
classified infrastructure will connect DOJ users with the Department of
Defense (DoD) Secret Internet Protocol Routing Network (SIPRNet)[^1] and
Joint Worldwide Intelligence Communications System (JWICS)[^2] and
provide component users with the capability to share information and
collaborate with external agencies that have related responsibilities
for defending America against the threat of terrorism and enforcing
federal criminal laws.

Similarly, a corporate investment in a common litigation case management
solution financed by JIST will yield long-term cost savings through the
reduction of redundant investments and improvements in operational
efficiencies. The LCMS program will help the Department operate more
like a single law firm and will enable more accurate reporting on case
loads and activity across the U.S.

Common solutions, in conjunction with data standards, also set the stage
for the second category of benefits, operational efficiency
improvements. Improved operational efficiency will be achieved through
greater information sharing. By implementing common data elements and
applying automated tools to share information, agents, attorneys, and
other staff will have access to more information, more quickly and
easily. The automated information sharing tools will be designed to
eliminate time spent on retrieving and validating information not
resident in the requestor's systems, and duplicative data entry, leading
to more efficient litigation activities and more effective litigation
results. The implementation of common standards for identifying and
processing litigation will enable the Attorney General to manage and
deploy the Department's legal staff and caseload more effectively.

JIST also supports continuing investments in established, successful
systems such as JCON and JABS. JCON is a reliable, secure office
automation system - using commercial-off-the-shelf products -- that
provides DOJ attorneys, law enforcement officials, and managers the
ability to immediately exchange all electronic data within and between
components. By providing for the maintenance of the JCON Standard
Architecture, centralized acquisition management, a standardized system
development and implementation methodology, configuration management and
financing for new system deployments, JIST ensures interoperability and
information sharing among JCON components and their business partners,
*e.g.*, courts, other components, and federal agencies. JABS is a
successful information sharing system that has automated the booking
process, eliminating redundant, successive booking, and established a
federal offender tracking system. It provides a \"front end\" to the
FBI\'s Integrated Automated Fingerprint Identification System (IAFIS) by
providing an automated process for the collection and transmission of
fingerprint, photographic, and biographical data. In support of JABS,
JIST resources operate and maintain the Core JABS data repositories,
maintain the Automated Booking Station (ABS) software/hardware already
deployed by the participating components, and support the booking
station equipment refreshment program.

JIST also supports the UFMS Program. This Program is an effort to
improve the Department's financial management performance by providing
Components with an enterprise-wide Financial Management System and
standard processes that will enable effective management of financial
resources in support of the Department's mission, objectives, and
strategic goals. The mission of the UFMS Program is to implement a
secure and integrated financial management system, supported by standard
processes, and compliant with applicable statutes and regulations.

UFMS will provide:

-   Information for managers at all levels to make sound business
    decisions for their assigned areas of responsibility;

-   Opportunities for improved efficiency from standardized business
    practices;

-   Enhanced system security and financial accountability; and

-   Support to Government-wide financial and procurement management
    initiatives.

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>
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**3. Performance, Resources, and Strategies**

> a\. Performance Plan and Report for Outcomes
>
> Justice Information Sharing Technology JIST consolidates certain IT
> resources so that the Chief Information Officer can more effectively
> coordinate DOJ IT investments and directly finance certain
> infrastructure improvements.
>
> ***Oversight of these resources and key programs*** is critical to
> their success and ensuring outcomes that support the Department's
> mission.
>
> As part of the FY2006 JIST Appropriation the Department has
> established a Department IT Investment Review Board (DIRB). The
> membership of the DIRB is composed of Department of Justice (DOJ)
> executive officers and is augmented by non-voting DOJ representatives
> and component members. The Deputy Attorney General (DAG) chairs the
> board and the Chief Information Officer (CIO) serves as vice chair.
> The DIRB is composed primarily of members with IT subject matter and
> financial management expertise, thereby providing complementary
> perspectives on the best use of investment resources to improve the
> management of the Department.
>
> The DIRB provides the highest level of investment oversight as part of
> the Department's overall IT investment management process. The
> Department's IT investments are vetted annually through the budget
> submission process and in conjunction with each component's
> Information Technology Investment Management (ITIM) process. Of the
> hundreds of projects that are funded annually across the Department,
> approximately a dozen are selected each year for DIRB review based on
> the size of their budget and/or their strategic importance to the
> mission of the Department. The DIRB's principal functions in
> fulfilling its decision-making responsibilities are to:

-   Ensure compliance with the Clinger-Cohen Act and all other
    applicable laws, rules, and regulations regarding information
    resources management;

-   Monitor the Department's most important IT investments throughout
    their project lifecycle to ensure goals are met and the expected
    returns on investment are achieved;

-   Ensure each project under review has established effective budget,
    schedule, operational, performance, and security metrics that
    support the achievement of key project milestones;

-   Review the recommendations and issues raised by the components' IT
    investment management ITIM process;

-   Review annually each component's IT investment portfolio, including
    business cases for new investments, to inform departmental IT
    portfolio decisions;

-   Develop and implement decision-making processes that are consistent
    with the purposes of the DIRB, and with applicable Congressional and
    OMB guidelines for selection, monitoring, and evaluation of
    information system investments (these processes shall be designed to
    ensure that the DIRB's decisions are consistent, valid, and
    actionable, support the Department's business needs and processes,
    align with the Department's strategic goals and objectives, comply
    with enterprise architecture, and consider the delivery of a
    modernized IT infrastructure and efficient, effective services as a
    driving goal); and

-   Establish a communications plan that conveys DIRB actions and
    progress against the Department's identified process and goals.

> In addition to the DIRB, the Department has established an IT
> Dashboard that allows management to review various aspects of major
> initiatives across the Department. The Dashboard is considered another
> oversight tool since all projects cannot be reviewed by the DIRB. The
> dashboard includes Earned Value Management System (EVMS) reporting to
> ensure projects are evaluated against acceptable variances for scope,
> schedule and costs. Risk analysis and project funding information are
> also available in this tool. This allows the Department's CIO and
> senior management team to have access to project information via the
> web.
>
> b\. Strategies to Accomplish Outcomes
>
> Specific, mission critical IT infrastructure investments are designed,
> engineered and deployed with JIST resources.

-   LEISP creates the core law enforcement information sharing services
    that will allow information to be routinely exchanged between
    agencies and their systems. Its objectives are to:

> 1\. Integrate several existing or newly initiated DOJ funded
> information sharing systems including:

-   National Data Exchange (N-DEx)

-   Regional Data Exchange (R-DEx)

> 2\. Direct the integration and support the timely completion of
> ongoing projects by infusing project coordination guidance, technology
> direction, and project oversight from the Office of the CIO.
>
> 3\. Provide access to other federal, state and local agency
> communications infrastructure to exchange law enforcement information.
> This will be achieved by connecting (or enhancing existing
> connections) between DOJ networks (JUTNET, CJIS WAN, LEO) and the
> networks of other federal partners such as the Department of Homeland
> Security (DHS), as well as selected state/local networks such as the
> National Law Enforcement Telecommunications System (NLETS) and the
> Regional Information Sharing System (RISS).

-   Develop and implement an electronic authentication system to allow
    authorized users from other federal, tribal, state and local law
    enforcement agencies to access DOJ information from the core LEISP
    services. The electronic authentication system is necessary to
    identify individuals who are accessing DOJ through the core LEISP
    services with a high level of confidence. Positive electronic
    identification ensures that data is accessed only by authorized
    agents /officers, and is also necessary to allow DOJ to track and
    audit who accessed DOJ law enforcement data that includes personally
    identifiable information, a requirement of the Privacy Act. The
    LEISP intends to leverage the DOJ PKI program to achieve this
    objective.

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-   Connect select data sources from other federal law enforcement
    agencies (e.g., DHS) to the core LEISP services. To achieve this
    objective requires the OCIO to develop and implement one or more
    data source adapters similar to those discussed above for DOJ
    component data sources.

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-   The LCMS is a new initiative modeled on the success of JCON and
    JABS. Through the availability of a centrally managed fund and
    corporately controlled planning, engineering, acquisition and
    deployment, the Department will improve operational efficiency
    through greater information sharing. By implementing common data
    elements and applying automated tools to share information, agents,
    attorneys, and other staff will have access to more information,
    more quickly and easily. Further, the implementation of common
    standards for identifying and processing litigation will enable the
    Attorney General to manage and deploy the Department's legal staff
    and caseload more effectively.

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-   The JCON Program is a mature infrastructure program that provides a
    reliable and robust common office automation platform upon which 16
    of the DOJ litigating, management, and law enforcement components
    operate their mission-critical applications. JCON centrally funds
    and manages the planning, acquisition, and implementation of a
    commercial-off-the-shelf (COTS) product-based office automation
    solution for participating components across the Department.

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-   The SIMC program provides additional resources to fund the
    construction of PKI, secure desktop, security, and other shared
    services to manage identities at DOJ. These services are imperative
    for DOJ to be able to address information sharing and agency
    interoperability requirements of the National Security Division
    (NSD), Department of National Intelligence (DNI), Information
    Sharing Council (ISC), and the many Task Forces in which DOJ users
    participate; and moreover, will enable agency interoperability at
    the SBU level where required. Consistent, DOJ-wide solutions for
    SIMC at multiple clearance levels within the department will allow
    DOJ to more securely provision, manage, and authorize access to
    critical mission resources for our employees. In coordination with
    the JCON initiative this investment will also provide the framework
    and infrastructure to support the government-wide Identity
    Management requirements included in HSPD #12.

> c\. Results of Program Assessment Rating Tool (PART) Reviews
>
> JIST has not been selected for a PART Review.

**V. E-Gov Initiative**

None.

**VII. EXHIBITS**

A. Organizational Chart

> B. Summary of Requirements
>
> C. Program Increases by Decision Unit -- **Not Applicable**
>
> D. Resources by DOJ Strategic Goal/Objective
>
> E. Justification for Base Adjustments
>
> F. Crosswalk of 2007 Availability
>
> G. Crosswalk of 2008 Availability
>
> H. Summary of Reimbursable Resources
>
> I. Detail of Permanent Positions by Category
>
> J. Financial Analysis of Program Increases/Offsets - **Not
> Applicable**
>
> K. Summary of Requirements by Grade
>
> L. Summary of Requirements by Object Class
>
> M. Status of Congressionally Requested Studies, Reports, and
> Evaluations - **Not Applicable**

[^1]: Secret Internet Protocol Routing Network (SIPRNet) architecture is
    a worldwide backbone router system that interconnects the
    intelligence community at the Secret Level.

[^2]: Joint Worldwide Intelligence Communications System (JWICS)
    architecture is a worldwide backbone router system that
    interconnects the intelligence community at the Top Secret Level.