Integrated 
Intelligence and 
Crime Analysis:

Enhanced Information 
Management for Law 
Enforcement Leaders


Integrated 
Intelligence and 
Crime Analysis:

Enhanced Information 
Management for Law 
Enforcement Leaders

Jerry H. Ratcliffe, PhD


The Police Foundation is a national, independent, nonprofit organization dedicated to supporting innovation and 
improvement in policing. Established in 1970, the foundation has conducted seminal research in police behavior, 
policy, and procedure, and works to transfer to local agencies the best information about practices for dealing effectively 
with a range of important police operational and administrative concerns. Motivating all of the foundations 
efforts is the goal of efficient, humane policing that operates within the framework of democratic principles and the 
highest ideals of the nation. 

The Office of Community Oriented Policing Services (COPS) was created as a result of the Violent Crime Control 
and Law Enforcement Act of 1994. A component of the U.S. Department of Justice, the COPS mission is to advance 
community policing as an effective strategy in communities efforts to improve public safety in jurisdictions of all sizes 
across the country. Community policing represents a shift from more traditional law enforcement in that it focuses on 
prevention of crime and the fear of crime on a very local basis. 

This project was supported by Cooperative Agreement #2005-CK-WX-K004 by the U.S. Department of Justice, Office 
of Community Oriented Policing Services. Points of view or opinions contained in this document are those of the 
author and do not necessarily represent the official position or policies of the U.S. Department of Justice or the Police 
Foundation.

 2007 by the Police Foundation. All rights, including translation into other languages, reserved under the Universal 
Copyright Convention, the Berne Convention for the Protection of Literary and Artistic Works and the International 
and Pan American Copyright Conventions. Permission to quote readily granted.

ISBN 1-884614-21-3 

978-1-884614-21-7

August 2007

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Integrated Intelligence and Crime Analysis: Enhanced Information Management for Law Enforcement Leaders is available 
online at http://www.policefoundation.org/docslibrary.html and http://www.cops.usdoj.gov/



Table of Contents

Foreword .................................................................................v

Acknowledgements .......................................................................vii

Executive Summary ........................................................................1

The 2005 Forum on Intelligence and Crime Analysis ........................................4

What is the Purpose of this Report? ......................................................5

Criminal Intelligence and Crime Analysis .................................................8

What is Intelligence Analysis? ...........................................................8

Tactical Intelligence ...................................................................10

Operational Intelligence ................................................................10

Strategic Intelligence ..................................................................11

What is Crime Analysis? .................................................................13

What Crime Analysis is Not ..............................................................15

The Need for an Integrated Analysis Model ...............................................15

What Does this Mean for Police Chiefs? ..................................................17

What is an Integrated Analysis Model? ...................................................20

How Might an Integrated Model work? .....................................................21

The Benefits of an Integrated Analysis Model ............................................23

Hindrances to Integrated Analysis .......................................................25

Potential Barriers ......................................................................25

Police Culture ..........................................................................28

Jumpstarting Integrated Analysis ........................................................30

Expecting More from Analytical Thinking .................................................33

Developing Integrated Analysis: Checklists for Action ...................................35

Checklist for Executives ................................................................35

Checklist for Analysts ..................................................................35

Resources ...............................................................................36

References ..............................................................................37

Biographies of Participants in the Forum on Intelligence and Crime Analysis .............38


Foreword

Law enforcement agencies rely on a multitude of information sources and utilize a variety of 
approaches to prevent and respond to crime and disorder problems. These approaches, whether 
broad or specific, are typically tactical, operational, or strategic, and each requires that information 
be collected, synthesized, and analyzed into a usable format. 

The sources of information may vary (arrest data, wiretaps, informants, crime data, etc.) 
depending on the objective, but the analysis of these sources into useful information and data is 
largely the task of law enforcement analysts who focus their efforts on trying to identify crime 
patterns, trends, and linkages between individual offenders and/or organized groups. 

Generally speaking, intelligence analysis involves the development of critical and substantive 
products that support law enforcement decision-making efforts that are centered on organized 
criminal activity. Crime analysis, on the other hand, involves the use of various geographical and 
socio-demographic information, in combination with spatial techniques, to analyze, prevent, and 
solve crime and disorder problems. Both disciplines are essential to law enforcement operations, 
but their ability to provide greater analytical and investigative support has been hindered by the 
lack of integration between the two units due to various issues, such as departmental policies, the 
police culture, and a lack of leadership.

Over the past few years, much debate and discussion has surfaced within the law enforcement 
analyst community about the culture and operational functions of these units. Information from 
the intelligence unit is typically considered confidential and thus is perceived to be of greater 
value because of its sensitive nature. On the other hand, crime analysis information is less sensitive 
and is used more widely throughout agencies. In many cases, law enforcement agencies tend 
to position the intelligence capacity at a separate level within the organization, creating a further 
divide with other analytical units such as crime analysis. Of particular importance, however, given 
the nature and scope of intelligence and crime analysis units, is the issue of why they do not work 
more closely together to provide a more holistic approach to crime problems and to better inform 
decision makers about the problems affecting the communities they serve. 

Police managers and leaders tend to rely heavily on the range of products that both intelligence 
and crime analysis units provide to inform their decision-making process with respect 
to crime prevention, deployment strategies, and crime suppression. Better coordination between 
these two analytical units can enhance both the quality of those products as well as the support 
they provide decision makers. This report documents the issues and recommendations made by a 



group of distinguished law enforcement practitioners, researchers, and policy makers that convened 
at the Police Foundation in November 2005 to discuss the integration of crime and intelligence 
analysis. We hope that this report contributes to a greater understanding of the importance 
of utilizing intelligence and crime analysis units more effectively to assist law enforcement managers 
and leaders with their tactical, operational, and strategic decisions. 

Hubert Williams
President
Police Foundation


Acknowledgements

This report would not have been possible without the contributions of the participants of the 
2005 Forum on Intelligence and Crime Analysis. We greatly appreciate their insight and candor. 
We are especially grateful to Dr. Jerry Ratcliffe who led the forum discussion and authored this 
report, drawing on the comments of the participants and his considerable knowledge of and experience 
in intelligence and crime analysis. 

The Police Foundation gratefully acknowledges the Office of Community Oriented Policing 
Services, U.S. Department of Justice, for its support of this project, particularly Dr. Matthew C. 
Scheider, Amy Schapiro, and Deborah Spence for their participation and assistance throughout 
the course of this project. 

We thank the following current and former Police Foundation staff and fellows for their 
support in producing the forum and this report: Karen Amendola, Greg Jones, Mary Malina, Joe 
Ryan, Sergeant Terril Shoemaker, and Heather Tubman.


Executive Summary

Law enforcement executives are increasingly recognizing that they are no longer in an information-
poor world: data and information about the criminal environment and criminal activity 
abound. The challenge is to corral this wealth of data into knowledge that can enhance decision 
making, improve strategies to combat crime, and increase crime prevention benefits. In other 
words, the aim is to convert data and information into actionable intelligence.

In many cases, however, this increase in data has not necessarily translated to an increase in 
knowledge. The structure of information handling processes within policing is not set up for the 
new millennium and ideas about intelligence management and dissemination from the 1970s still 
pervade the thinking and organizational culture of police agencies in the twenty-first century. 
While many executives get access to crime analysis, sometimes through Compstat meetings or 
similar briefings, criminal intelligence is not integrated into the picture and executives make key 
decisions without access to all of the pertinent knowledge available within their organization. 

For much of the history of law enforcement, criminal intelligenceinformation that relates to 
the activities of criminal individuals or groups of offenderswas retained by specialized units or 
by individual detectives. Even with the introduction of intelligence units, these analytical groups 
often kept their information within the narrow confines of their specific unit. The focus of intelligence 
units was first and foremost on reactive, investigative support. This situation continues in 
most places today. For example, narcotics intelligence units do not share intelligence beyond their 
units, and street gang intelligence units do the same. In the new environment of intelligence-
led policing, these information silos are too valuable as strategic resources for the whole police 
department to squander on the needs of an individual investigator or unit. As we learn more 
about the abilities of organized crime groups to involve themselves in a range of criminal enterprises 
such as street crime, narcotics, human smuggling, and money laundering, it has become 
necessary to restructure law enforcement analytical services to better reflect this criminal environment. 
The risks are too high to stick with unit isolation and specialization out of simple bureaucratic 
convenience. 

To change this situation will require executive leadership within policing. The purpose of 
this report is to provide the necessary information for police managers to implement change and 
embrace the information-rich environment of modern policing. The document is also of value to 
intelligence analysts and crime analysts wishing to get greater traction from the intelligence they 
produce. 


The central themes and recommendations originate from an intelligence and crime analysis 
forum, convened by the Office of Community Oriented Policing Services, U.S. Department of Justice, 
and the Police Foundations Crime Mapping and Problem Analysis Laboratory at the end of 
2005. Eighteen practitioners, policy makers, and researchers were brought together to address the 
crime analysis and criminal intelligence needs of the future, and their thoughts and quotes influence 
and enhance this work. 

The net result of these endeavors was endorsement of an integrated analysis model. By blending 
crime analysis with criminal intelligence, it is suggested that crime analysis can provide the 
what is happening picture of the criminal environment, and criminal intelligence can provide the 
why it is happening. These two components, used in combination, are essential to a more complete 
understanding of criminality necessary to formulate effective crime reduction and prevention 
strategies. The integrated analysis model will allow executives to see the big picture of criminality 
and from this knowledge access a wider range of enforcement options. Furthermore, this can 
allow a more fluid response to crime, one that is based on a realistic model of analysis that better 
mimics the criminal environment. 

Intelligence-led policing is a business model and managerial philosophy where 
data analysis and crime intelligence are pivotal to an objective, decision-making 
framework that facilitates crime and problem reduction, disruption and prevention 
through both strategic management and effective enforcement strategies that target 
prolific and serious offenders. 

Source: Ratcliffe, J.H. (Forthcoming 2008). Intelligence-Led Policing. Cullompton, Devon, UK: Willan Publishing.

However, the hindrances to the development of this model are not insignificant and will 
require a better understanding by police managers of the business model that is modern intelligence-
led policing. For example, problems discussed in this report include: issues of civilianization, 
differing missions and terminology between crime analysts and criminal intelligence officers, 
isolationist and case-specific thinking instead of concentrating on the big picture, perceived legal 
restraints on intelligence analysts, and a lack of training and education. Most importantly, there is 
a resistance from police culture and a lack of leadership from police executives. Perhaps the most 
pressing issueone that is crucial for the success of intelligence-led policing in the U.S.is the 
lack of executive training. Many police leaders received their training and initiation into policing 
in a different time when investigators were the only people who used covert information and 
experience was the key to promotion into leadership positions. Information resources beyond 
the odd map with some pins were generally unheard of, and experience and gut feeling were the 
compass that guided most senior officers. Reactive, case-by-case investigation is now known to be 
ineffective in stemming the flow of crime, and covert and information resources have to be used 
more strategically. Intelligence-led policing requires a greater integration of covert information, 
criminal intelligence, and crime analysis to better manage risk and to support proactive policing 
that targets enforcement and promotes crime prevention. This new approach requires police leaders 
to learn and embrace a new way of thinking about knowledge and risk, and it also demands a 
new organizational approach for the police department. 


Stemming from the work of the forum participants, it has been possible to make a number of 
key recommendations. First, police chiefs should strive to better understand the central tenets of 
intelligence-led policing and work more closely with analysts. Articulating the vision of the police 
department should be matched by an organizational restructuring of the information sections of 
the department to increase managers access to intelligence. Secondly, there are a number of issues 
that managers and analysts should take heed of, including: resolving technological barriers; better 
understanding legal and privacy constraints in order to maximize intelligence-sharing; building 
connections with other analysts; and learning about problem-oriented policing and community 
policing. 

The challenges of the new information-rich, post-9/11 age require effort to resolve and leadership 
to implement. The forum pinpointed the key challenges limiting criminal intelligence 
sharing, advocated for the integrated analysis model, and identified the way that all police departments, 
big or small, can work individually and collectively towards the new intelligence-led policing 
paradigm of modern policing. There is now a need for police executives to step up and decide 
if they are ready to tackle the cultural and organizational barriers within law enforcement, action 
necessary to making intelligence-led policing a reality. 


The 2005 Forum 
on Intelligence and 
Crime Analysis 

Towards the end of 2005, the Office of Community Oriented Policing Services, U.S. Department 
of Justice, and the Police Foundations Crime Mapping and Problem Analysis Laboratory brought 
together a group of eighteen practitioners, policy makers, and researchers for a forum that aimed 
to identify the current state of criminal intelligence and crime analysis in the United States, and to 
describe where this relationship might, or should, go in the future (see Biographies of Participants 
in the Forum on Intelligence and Crime Analysis at the end of this report). The discussions lasted 
two days and were semi-structured in format. This enabled the forum moderators to allow participants 
to elaborate and expand on responses, while maintaining a focus on a number of issues that 
had been raised at an earlier meeting. The earlier meeting occurred at the 2005 annual training 
conference of the International Association of Law Enforcement Intelligence Analysts, where a 
group of twelve (predominantly practitioners) had identified some initial focus points that were 
used to initially direct the main forum. Other than Police Foundation staff, only Jerry Ratcliffe 
and Marilyn Peterson were present at both sessions. Quotes from forum participants appear 
throughout this report.


What is the Purpose 
of This Report?

Police chiefs and law enforcement policymakers who are tasked with crime reduction and prevention 
responsibilities need quality information in order to make good decisions. How best should they 
receive this information, and how should they organize their department to make the best use of 
information? Ideally, information passes through the hands of an analyst so that it can be combined, 
filtered, synthesized, and placed into context with other information so that the end result, an intelligence 
product, can give decision makers a succinct picture of the criminal environment. Nearly every 
modern policing strategy, from problem-oriented policing to Compstat and intelligence-led policing, 
requires an analysis of the criminal environment as the starting point to choosing a crime reduction 
strategy. This report addresses the creation of a more holistic analysis of the criminal environment. 
The goals are better policing, more targeted responses, effective crime prevention, and less crime. 

Criminal intelligence, as it is commonly operationalized, can provide decision makers and 
police chiefs with a snapshot of criminality and criminal behavior. Crime analysis can provide 
police leaders with an understanding of crime patterns and trends. Without this understanding 
of both crime patterns and criminal behavior, people who have to make decisions that affect 
the safety and security of communities will not have access to the vital, synthesized information 
essential to good planning and strategy. For example, an intelligence unit may have good information 
about a local group of offenders dealing in methamphetamine. Crime analysis, however, 
suggests that the key problems in the area are vehicle crime and heroin. With a more complete 
picture of the local criminal environment, the police executive can make a better decision about 
the best use of resources for these competing priorities. Alternatively, crime analysis might identify 
an area of a town where drug arrests have increased. The intelligence officer for the drug 
unit can fill in the picture with a description of a drug dealer who lives in that area and who has 
recently been released from prison. Knowledge of individuals and offender behavior can improve 
understanding of crime patterns and vice versa. 

"I dont know what you can do with intelligence without crime data or what you can 
do with crime data without turning it into actionable intelligence."

Debra Piehl, Intelligence Analyst, 
Massachusetts State Police Fusion Center

While some police chiefs espouse the view that they have access to both criminal intelligence and 
crime analysis, the reality in many police departments is different. In fact, some have only crime 
analysts, while others have only intelligence officers, and this creates significant challenges for the 


individuals responsible for the interpretation of the criminal environment. Moreover, few executives 
have any information on the criminal world outside their jurisdiction. Intelligence sharing is 
the key but few know how to make it happen. 

"The vast majority of police agencies in the U.S. do not have the luxury of having both 
crime analysts and intelligence analysts. Having analysts trained and able to generate 
all-source and all-methods analysis is the most effective way for them to support the 
agencies missions."

Marilyn Peterson, Intelligence Management Specialist, 
New Jersey Division of Criminal Justice, Department of Law and Public Safety

Some of the problems are endemic to the U.S. More so than in many other countries, in the 
U.S. it is common for intelligence operatives to be sworn police officers, while crime analysts are 
most often civilians. The tendency for intelligence officers to refrain from sharing information is 
therefore compounded when the colleague that needs the information is a civilian. Some of the 
traditional reticence and mistrust that affects some sworn officers in regard to civilians can manifest 
itself within the crime intelligence arena to the detriment of good intelligence flow. 

Intelligence officers often retain their intelligence within their teams or squads, under the 
often mistaken belief that this is necessary for operational security and because of government 
rules. From the smallest police department right up to national security agencies, there is a 
tendency to restrict access to information rather than to distribute it to others whose perspectives 
can assist in developing appropriate solutions. Crime analysts work with crime patterns and 
trends but often stop short of gaining a better understanding of why the patterns unfold as they 
do and which groups or individuals may be responsible. Crime analysts tend to share widely, 
while criminal intelligence analysts feel constrained by culture, unit mission, and federal legislation. 
The inability or unwillingness to integrate criminal intelligence and crime analysis is affecting 
the ability to make communities safer. 

While most people agree that a full integration of criminal intelligence and crime analysis is 
essential, there are few agencies where this level of integration is a reality. Why might this be? 
There are a variety of reasonstechnical, organizational, and culturalas this report will explain. 
The report will also describe some strategies that can be used to better integrate these essential 
streams of knowledge so that decision makers have access to the best information and most comprehensive 
analysis possible in order to generate the best responses. 

"I think its appalling that a crime analyst and intelligence analyst in the same agency 
wouldnt work together, but this is often the case."

Christopher Bruce, Crime Analyst, 
Danvers, Massachusetts, Police Department 

This report starts by describing the differing roles that criminal intelligence and crime analysis 
play in the modern law enforcement environment. It then clarifies why the current situationa 
separation of key functions, as commonly seen in many police departmentsis both a hindrance 
to good policing in an intelligence-led policing environment, as well as a risk to the communities 
that police are sworn to protect. Furthermore, the lack of connectivity with crime analysts and 


the over-emphasis on security and secrecy that limits the amount of useful knowledge that intelligence 
analysts feel they can share with crime analysts is a fundamental problem that managers are 
going to have to address in the post-9/11 policing world that demands more efficient and proactive 
policing. This report argues for an integrated analysis model that combines the functions 
of crime analysis and criminal intelligence and seeks to avoid analytical processes that separate 
information on offenders from information on the crimes that they commit. In support of this 
argument, this report identifies a range of ways that the integrated model can help decision makers 
and includes a number of examples to demonstrate this approach. Finally, the report contains 
a number of practical recommendations for police departments wishing to better integrate these 
necessary functions and become more intelligence-led and problem-focused. The challenge exists, 
and leadership is the solution. For intelligence-led policing to truly function, police leadership 
will have to engage with the analysis function, as this report will show. 


Criminal Intelligence 
and Crime Analysis

What is Intelligence Analysis?

A public misconception about intelligence is that the tactics used to gather covert information 
constitute intelligence. This view is reinforced by misinformed fictional and media presentations. 
These often portray the intelligence function as a secretive and sometimes subversive activity that 
is morally ambiguous or takes police close to legal and ethical boundaries. There is a significant 
distinction between gathering information and using intelligence to influence the decision making 
of senior law enforcement personnel. Even within law enforcement, the term intelligence can 
often mean different things to different people. Add to this the qualifiers of intelligence analysis, 
criminal intelligence, crime intelligence, and intelligence-led policing, and the picture becomes 
even more complex. Many organizations have their own definitions of intelligence, from the brief 
to the painfully verbose. These problems of definition occur for understandable reasons: the intelligence 
needs of a large federal agency are quite different from the intelligence needs of a small, 
rural police department. Even metropolitan police departments differ, both in terms of their 
enthusiasm to be intelligence driven and the types of problems that they have to handle. When 
different cities have different problems, they often respond in different ways and, as a result, their 
information needs are different. A common corollary of this is that intelligence definitions differ. 

In order to show no favoritism, and because some definitions are too specific, we can basically 
say that criminal intelligence is the creation of an intelligence knowledge product that supports 
decision making in the areas of law enforcement, crime reduction, and crime prevention. In this context, 
an intelligence knowledge product is a product that can influence the thinking of a decision 
maker. It is the result of a criminal intelligence analysis and could be a written bulletin, a presentation, 
a verbal report, or some combination of these in a briefing. An intelligence knowledge 
product could even be a brief telephone conversation if the intelligence is timely and has an effect 
on the decision making of the recipient of the intelligence. 

While this definition may seem succinct, a little clarification is necessary. Some definitions 
limit intelligence as a process that targets individuals or groups of offenders. Indeed, many in 
policing see criminal intelligence solely as a mechanism to examine the behavior of individual 
offenders or organized crime groups, separate from the main patrol functions and high-volume 
crime focus of most police officers. There is a growing realization, however, that at the operational 
and strategic levels of law enforcement a deeper understanding of general criminality may 


be required, beyond simply trying to understand the behavior of individual offenders. The definition 
provided here places emphasis on intelligence that supports crime reduction and prevention 
as well as enforcement. 

Others feel that criminal intelligence should support just law enforcement decision makers, 
and they restrict the distribution of useful intelligence beyond sworn officers. But that approach 
suggests that only police can have an impact on crime, a view that is probably not shared by the 
majority of proponents of problem-oriented or community policing. The definition therefore simply 
mentions decision makers. Good analysts with a product that could make their community 
safer should seek out the most appropriate decision maker. Ideally, of course, the leadership of the 
police department should be a good starting point when searching for a decision maker. 

Finally, some perceive that the only value of criminal intelligence is when it can be used to 
effect an arrest or provide evidence against an offender. However, while good intelligence can 
assist with enforcement of criminal law, it can also suggest strategies to reduce the volume of 
crime or even provide a route to preventing offending altogether through problem-oriented tactics 
such as situational crime prevention and crime prevention through environmental design. 

As stated earlier, the techniques to gather covert information are not criminal intelligence. A 
common misconception is that criminal intelligence is the process of gathering wiretap records, 
conducting surveillance, and mapping telephone call records. The unfortunately common view 
among many in policing is that any information that is obtained covertly is called criminal intelligence. 
It is more accurate to call this covert information. Covert information becomes criminal 
intelligence when it is analyzed and assessed in context with any other sources of information 
that are known about the subject of inquiry. Some of the other sources that can be combined 
with covert information to become intelligence may be of an open-source nature (i.e., not secret). 
Investigative devices such as surveillance photography and telephone wiretaps are usually just 
tools used to build a case against an offender. Work in this area is therefore investigative case support 
and not intelligence. If the information is used to inform a broader picture of criminality that 
is used by decision makers to direct enforcement, prevention, or further intelligence resources, 
then it becomes criminal intelligence. 

"Im not sure that most U.S. criminal intelligence analysts are trained to do much more 
than case support. Moreover, Im not sure they see their own jobs as being more than 
case support. The problem lies largely with the way the profession has been sold to 
intelligence analysts in the United States, with its focus on criminal organizations, 
homeland security, and high-profile arrests and prosecutions. I think that many, if 
not most, criminal intelligence analysts in the U.S. prefer to think of their duties 
as providing analytical support to such endeavors. If criminal intelligence analysts 
thought of themselves more in a crime prevention role, or even a pattern analysis role, 
then certainly the intelligence analysis and crime analysis professions would have 
merged in the U.S. some time ago."

Christopher Bruce, Crime Analyst, 
Danvers, MA, Police Department
Criminal Intelligence and Crime Analysis


Tactical Intelligence

The most common level of criminal intelligence in operation around the world is tactical intelligence. 
This level of analysis supports front-line enforcement officers and investigators in taking 
case-specific action in order to achieve enforcement objectives such as tactical plans.1 In this 
case, the criminal environment that is under examination is a micro-level one, where the decision 
makers are individual investigators or small teams targeting local criminals. This is the most 
dominant form of intelligence analysis across the world and it is understandable why this is so. 
Tactical intelligence can often be directly tied into the investigative aim of effecting an arrest and 
gathering evidence for a conviction. For many police departments, chasing arrests and reactively 
responding to crime events are the main activities of operational police officers. A criticism of 
police departments that focus on tactical intelligence alone is that they do not necessarily have 
access to the broader and more holistic levels of intelligence that can provide a greater understanding 
of long-term problems, problems that exist at scales greater than that of the behavior of 
individual offenders. Tactical intelligence can therefore become a self-fulfilling prophecy, driving 
more short-term, arrest-focused activity, which in turn increases the demand for more tactical 
intelligence. Tactical intelligence is easier to explain to front-line officers as information that is 
often directly convertible to arrests. However, with some thought, it can also be used in a more 
operational or strategic sense, as Deborah Osborne explains:

"Analysis of investigative data in aggregates rather than case-by-case could help in 
discovering new patterns that might enhance both investigation and prevention of 
crime. What are the characteristics of burglary victims in a neighborhood? When are 
all the robberies occurring in a retail district? What are other factors that contribute 
to crime in a specific region? Weather? Events? How might the police be better 
deployed to address some of these issues? How might the community become involved 
by enhancing capable guardianship? Who are our vulnerable population and how 
might they be better protected?"

Deborah Osborne, Crime Analyst, 
Buffalo, New York, Police Department

Operational Intelligence

A second level of criminal intelligence exists at a broader, organizational level. Operational intelligence 
is the creation of an intelligence product that supports area commanders and regional 
operational managers in planning crime reduction activity and deploying resources to achieve 
operational objectives (Ratcliffe 2004). That some professional organizations do not consider 
this to be a distinct level of intelligence work is a mistake; if anything, this is the fastest growing 
area of criminal intelligence. This meso-level of operation supports decision makers who are 
responsible for geographic areas or who command enforcement teams. Operational intelligence 
helps decision makers decide which organized crime groups are most vulnerable to enforcement 
or which areas of a city require the most resources. It allows commanders with limited resources 
to determine the main priorities for the forthcoming few weeks or months, and provides a big-
picture understanding of longer-term problems that cannot be alleviated by making a few arrests. 
Operational intelligence priorities are often ripe as targets for problem-solving approaches and 

1 Adapted from Ratcliffe, J. H. (2004). The structure of strategic thinking, in J. H. Ratcliffe (Ed.), Strategic Thinking in Criminal 
Intelligence (pp. 110). Sydney: Federation Press.


for the types of methodologies used in problem-oriented policing. In terms of scale, it sits above 
tactical intelligence because operational intelligence is more concerned with identifying the most 
pressing crime-reduction priorities within a geographic area; only after a decision maker determines 
priorities will tactical intelligence be used to support any enforcement objectives. 

"Traditional policing has been reactive-investigations oriented. The new paradigm, 
intelligence-led policing, requires police to gather data, have it analyzed, and 
prioritize investigations and other remedies based on that analysis. This calls 
on police officers and managers to view analysts as filling a more proactive and 
substantive role than solely case support."

Marilyn Peterson, Intelligence Management Specialist, 
New Jersey Division of Criminal Justice, Department of Law and Public Safety

Strategic Intelligence

The third level of criminal intelligence considered in this report is strategic intelligence. Strategic 
intelligence aims to provide insight and understanding into patterns of criminal behavior and 
the functioning of the criminal environment, and aims to be future-oriented and proactive. This 
intelligence is used by executives and top-level managers who are responsible for organizational 
planning designed to impact the criminal environment. The strategic intelligence product seeks to 
influence long-term organizational objectives and to contribute to discussions of policy, resource 
allocation, and strategy. Good strategic products will influence not just police behavior but also 
that of other, non-law enforcement organizations that are able to have an impact on crime, such 
as health services, city planners, and other criminal justice agencies. 

Strategic intelligence is an often-misunderstood aspect of criminal intelligence and, yet, if real 
crime reduction is to be achieved, it has the potential to be of the greatest value to police leaders and 
executives responsible for crime prevention. Too many crime analysts are focused on the tactical end 
of the intelligence spectrum and too few concern themselves with longer-term crime problems and 
challenges. There is usually a good reason for this: few police managers are trained or experienced 
enough to be able to put a strategic intelligence product to good use, and most cops demand tactical 
products that can help alleviate an existing crime issue. This lack of demand from the client base 
does not mean that strategic intelligence products are of little value to crime prevention. 

"The analysts role in helping apprehend and prosecute criminals is of real value and 
personally rewarding. Yet, the greater value in using analysis exists at the strategic 
level of analysis, where leverage points to disrupt and prevent crime can be identified. 
Too few analysts are engaged in such work."

Deborah Osborne, Crime Analyst, 
Buffalo, New York, Police Department 

The boundaries between operational and strategic intelligence tend to blur to a considerable 
degree. To some extent, these boundaries are, and should be, fluid. Criminal behavior does not fit 
neatly into nice categories so that we are able to compartmentalize the analysis function and have 
an impact on offender activity. With the exception of lone offenders who shun accomplices, much 
offending is a combination of individual activity and cooperative action. For example, an individual 
crook might steal credit cards and thus be a potential target for a tactical intelligence profile; 
however, the offender may sell the credit cards to a network of accomplices or may use the credit 


cards at a number of local stores that knowingly accept fraudulent transactions. An operational 
intelligence product might be able to estimate the scale of the problem and place the credit card 
scam within the context of other activity, allowing an operational commander to decide what 
the important priorities are for his or her officers. A strategic intelligence product might use the 
activities of the individual offender as an illustrative case study, and a senior police officer might 
employ a strategic product to convince credit card companies to change their security protocols. 
This strategic intelligence product has the capacity to influence criminal opportunity at a large 
level, but much of it can be derived from a number of tactical and operational intelligence reports. 

Furthermore, the notions of operational and strategic intelligence change with agency size 
and operational scope. While tactical intelligence generally refers to case-specific activity at all 
levels of law enforcement, operational and strategic intelligence can be applied and interpreted 
quite differently. This is demonstrated in Figure 1, showing a simplified model of agency scope for 
different agencies. While it is recognized that agencies within each category can differ, the range 
of activities conducted as strategic activities in a rural police department will differ considerably 
from activities deemed strategic by a federal agency. For example, few municipal police departments 
will compete with the New York City Police Department in terms of their mandate and 
scope, yet all police agencies, regardless of size, will have issues that are tactical priorities and 
long-term problems that are strategic issues for them to solve. The only difference is the scale of 
the issue and not the nature of the tactical-operational-strategic continuum.

Figure 1 shows that federal agencies are likely to have the widest scope of activities and 
concerns and, as a result, will have the widest extent of intelligence activities, with strategic 
intelligence concerning itself with international criminal intelligence patterns and their likely 
impact on the country on a broad scale. Operational intelligence will conduct activity at scales 
that may cross state lines, and tactical operations will be supported by tactical intelligence that 
is case-specific. State police are likely to have similar considerations in terms of the scale and 
range of activities that the intelligence arm may address, though the international dimension 
may not be so prevalent. At this point, we can see from Figure 1 that the strategic activities of 
a state police unit may fall between operational and strategic for a federal agency. The scope of 
activities reduces again when considering a municipal police department that has responsibility 
for a single city or municipality. What is considered strategic for a municipal police agency at 
this point may fall within the mandate of an operational intelligence unit with a state or federal 
agency, yet it is clearly a long-term, strategic priority for a municipal police department and 
should be treated as such.

Finally, the scope of activities within a small rural agency is likely to be fairly constrained, 
with considerable overlap between tactical, operational, and strategic activities. Strategic planning 
and the intelligence requirements to support it may be considered as operational activities for a 
municipal police department at this level and may not even be considered operational in level by 
a federal agency. Yet, there are clearly strategic issues for a rural agency as much as there are strategic 
priorities for a large federal agency: the tactical-operational-strategic continuum is equally 
valid for all agencies, regardless of size. 


Added to these issues of agency size and scope, criminal intelligence is often organized differently 
from place to place across the U.S. and the world. It is probably reasonable to say, however, 
that the majority of police departments tend to be driven by the tactical level and rarely have 
a unit within the department that has a purely strategic role. State and federal bodies are more 
likely to have a strategic capability because they have greater influence over state and federal budgets 
and the associated resources. In the U.S., local police departments that have intelligence officers 
are more likely to employ sworn officers in a tactical role. This is often because intelligence 
officers began in a sworn function within organized crime or drug units where the main focus has 
traditionally been on maintaining a substantial arrest rate. This is unfortunate, as many of the key 
crime prevention tools that exist to combat criminal activity are effectively long-term remedies 
that are identified through a strategic analysis.

What is Crime Analysis?

As with criminal intelligence, there are a myriad of definitions for crime analysis. Crime analysis 
is essentially the systematic study of crime and disorder problems as well as other police-related 
issuesincluding sociodemographic, spatial, and temporal factorsto assist the police in criminal 
apprehension, crime and disorder reduction, crime prevention, and evaluation (Boba 2005, 6). 

Figure 1. Simplified scope of intelligence activities for different types of agencies


Like criminal intelligence work, crime analysis has a tactical, operational, and a strategic 
component. The tactical aspect focuses on immediate issues that are of significance to a police 
department; operational issues identify priority areas and potential problems; and the strategic 
component looks at longer-term problems that might be solved by either a police department 
or by agencies such as a city council or planning department. If these external groups are to 
be provided with crime-related information, the analytical task is termed administrative crime 
analysis (Boba 2005; Lersch 2004). This is an area of crime analysis that is not directly involved 
with crime reduction activities but provides support to grant applications, community relations, 
and feasibility studies. A further component of crime analysis is criminal investigative analysis, 
a lesser-employed aspect of crime analysis that includes activities such as geographic profiling 
(Canter, Coffey, Huntley, and Missen 2000; Rossmo 2000; Santtila, Zappala, Laukkanen, and 
Picozzi 2003), and specific case support for investigations. 

Crime analysis is a term used to describe a broad range of activities and ideas. Of potentially 
greater value is the term problem analysis. Problem analysis stems from Herman Goldsteins concept 
of problem-oriented policing (1990) and has come to signify a form of crime analysis that is 
conducted within the police agency [and] in which formal criminal justice theory, research methods, 
and comprehensive data collection and analysis procedures are used in a systematic way to 
conduct in-depth examination of, develop informed responses to, and evaluate crime and disorder 
problems (Boba 2003, 2). It is closely allied with the framework of problem-oriented policing, a 
process that not only concentrates on the identification and remedy of crime problems but also is a 
more comprehensive framework for the improvement of the police response to all aspects of their 
work (Scott 2000). Problem solving is the thought process by which officers and analysts achieve 
their goals, and is often articulated through the SARA (Scanning, Analysis, Response, and Assessment) 
process (Eck and Spelman 1987).2 For our purposes here, we can consider crime analysis to 
be the overarching generic term that can collectively represent these more specific activities.

Unlike criminal intelligence, crime analysis is a relatively new discipline within law enforcement. 
While criminal intelligence may have remained in the murky backwaters of policing for 
over one hundred years (Christopher 2004, 179), it does at least have name recognition both 
internally and externally to law enforcement. By comparison, crime analysis is a young upstart 
whose growth has occurred largely as a result of the digitalization of the policing world. Only 
since the 1980s have significant numbers of police departments discovered that they were able 
to use data originally recorded for statistical purposes for more than just annual summaries of 
crime frequencies.3 Even with this discovery, the lack of suitable computer hardware and software 
applications inevitably hampered the growth of the crime analysis field. Only in the last decade or 
so have we seen the creation of off-the-shelf, commercial crime analysis products to replace programs 
that were previously created by programmers hired by police departments or on contract 
from universities. This growth has generated the professional field of crime analysis. 

2 Details of the SARA model can be found at http://www.popcenter.org/about-SARA.htm.

3 For example, police departments in the U.S. provide an annual summary of crime statistics through the Uniform Crime Reports 
process to the FBI, and in the U.K. police services provide regular data reports to the Home Office.


Goldstein argues that in a police agency in which individual officers may not know what has 
occurred outside the areas in which they work or during periods when they are not on duty, crime 
analysis has been the primary means for pooling information that may help solve crimes (1990, 37).

What Crime Analysis is Not

As there are misconceptions with criminal intelligence, so there are misconceptions with crime 
analysis. Given the aim of exploring both crime events and broader trends in crime patterns, good 
crime analysts have to understand a wide range of technical and theoretical areas. For example, 
an experienced crime analyst might have an understanding of quantitative research skills using a 
variety of software packages, probably uses a geographical information system to analyze spatio-
temporal crime activity, creates analysis products and conducts officer briefings, and has a knowledge 
of the basics of environmental criminology. However, the perception sometimes is that crime 
analysts just provide management with charts and breakdowns of overtime and sick leave or 
simple counts of the numbers of different crime types that have happened in the last week. These 
tasks are not crime analysis but are simply the provision of management statistics. Such requests 
for help in areas unrelated to crime can often be a considerable drain on the enthusiasm of some 
analysts, and police executives should be wary of allowing their analysts to engage in work that is 
far removed from the central aims of crime reduction and prevention. 

Like good criminal intelligence analysis, good crime analysis requires an investment in training, 
hardware, software, and personnel in order to function at the higher levels beyond basic 
management statistics. Good crime analysis is also a function of good leadership from police management. 
A skim through the excellent Crime Analysis for Problem Solvers in 60 Small Steps (see 
the resources section near the end of this report) gives a great indication of the wide skill range 
necessary to be a good crime analyst and should be required reading for all crime analysts and 
their managers.

"Analysts may employ nonlinear approaches to analysis by synthesizing information 
obtained in a number of methods to see a more complete whole of a crime problem. 
These methods may include crime mapping, statistical analyses, field observations 
of high-crime and low-crime areas, reading crime and intelligence reports, talking 
to officers, suspects, and victims, looking for evidence links, as well as gathering 
information on known offenders residing in or near the jurisdiction. Merging crime 
and intelligence analysis will provide a more accurate whole picture and improve 
the meaningfulness and utility of information generated by law enforcement analysts."

Deborah Osborne, Crime Analyst, 
Buffalo, New York, Police Department

The Need for an Integrated Analysis Model

The previous section might suggest that crime analysis shares many goals with criminal intelligence. 
Both fields look to influence police decisions as a result of an objective understanding of the criminal 
environment, and they both seek to employ information as the raw product to which analysts add 
value through their analytical techniques. However, there are significant and important differences 
that directly impact on the ability of law enforcement to protect communities and reduce crime. 


To explain these differences, it is necessary to generalize quite considerably here. Across the 
globe there exists nearly every conceivable configuration of police department, from small departments 
with only a couple of officers, to large national agencies employing tens of thousands of 
officers and agents; from agencies with no analytical support, to departments with dozens of intelligence 
and crime analysts; from departments with pin maps on a wall, to police services with 
advanced real-time mapping systems accessible through intranet portals; and police agencies that 
have only crime analysts or have only intelligence analysts. The following description is therefore 
not designed to be recognizable to every department but it does aim to describe a common scenario.

In general, most criminal intelligence analysts (also known as intelligence officers) are sworn 
officers, often working within specialized units such as narcotics, organized crime, or counter-
terrorism. These analytical staff concentrate their energies on identifying members of organized 
crime groups and helping investigators gather evidence to support a prosecution. Under the 
mantra of security, the intelligence produced by these units is usually retained in-house and is not 
shared with the rest of the police department. The officersusually sworn and predominantly 
malehave often come to the intelligence role through a number of years as patrol officers and 
often as detectives or investigators. The main focus of intelligence units is on the criminality of 
individuals and groups. 

By comparison, crime analysts are more likely to be civilianand more likely to have a higher 
female ratio than in the ranks of the criminal intelligence officer and report directly to the command 
staff of the police department. They tend to concentrate on reported crime rather than on 
the activities of individuals, and their information is disseminated more widely throughout the 
police department, as it is usually deemed to be less sensitive and case specific. One increasingly 
popular mechanism by which their intelligence is disseminated is through Compstat meetings. 
As a result of the more recent introduction of the crime analysis field to policing, crime analysis 
products sometimes receive less recognition in a policing field that places greater significance in 
information that is secret or covertly gathered. The main focus of crime analysis units is on crime 
patterns and disorder problems. 

"Many agencies currently have crime analysts and criminal intelligence analysts but 
keep them separate. In such agencies, I suspect that the crime analysts have their 
fingers on the pulse of the crime and safety dynamic in the jurisdictionswhats 
up, whats down, where the hot spots are, what type of property is being stolen, and 
so on. In other words, they know about the patterns and trends and problems. The 
intelligence analysts, on the other hand, are likely to be more aware of the specific 
people responsible for crime in the jurisdictionwho they are, where they live, what 
they do, who they associate with, who gives their orders, and what theyre planning." 

Christopher Bruce, Crime Analyst, 
Danvers, Massachusetts, Police Department

Most importantly, there is often little cooperation or even communication between intelligence 
officers and crime analysts. Some police departments do not have crime analysts, while 
others do not have intelligence analysts. Some agencies employ an analyst who attempts to do 
both jobs. Few agencies have a network of interconnected crime and intelligence analysts and, as 


a result, few police departments have a senior management team that gets crime and intelligence 
briefings based on information that has been sufficiently analyzed and synthesized to understand 
the big picture. 

"I think its a belief that they dont need each other to function. The thought is, Why do 
I need intelligence analysts to do crime analysis?"

Jason Elder, Crime Analyst, 
Baltimore/Washington High Intensity Drug Trafficking Area (HIDTA)

The real danger is that most police departments have chiefs and senior officials that get some 
of the intelligence on the criminal environment but not all of it. Even with the introduction 
of fusion centers in the U.S., few managers have analysts that are tied into local networks that 
enable police leadership to access intelligence on the crime picture in neighboring jurisdictions. 
Internally, agencies that have only crime analysts often lack a detailed understanding of recidivist 
individuals and gangs and their motivations, while agencies that have only intelligence analysis 
get detailed information on individuals and networks but little indication of the crime context in 
which these people operate. 

"The integration of the intelligence and crime analysis functions is essential to 
uncovering crimes linked to organized groups of criminals (groups of juveniles in 
a neighborhood, gang-related activity, and so on). By looking only at crime data 
without the integration of intelligence on people, locations, and groups, crime 
analysis will always fall short of the overall picture of crime."

Mary Garrand, Crime Analyst Supervisor, 
Alexandria, Virginia, Police Department

In summary, criminal intelligence analysis provides information on prolific offenders and 
organized criminal groups, while crime analysis provides the crime context of the environment 
in which they offend. Both are essential to a full understanding of crime problems and recidivist 
criminality, and are prerequisites of good decision making and effective crime reduction.

"I think when we talk about crime analysis we are talking about incidents and 
patterns of incidents. When we talk about intelligence analysis, we are talking about 
individuals and criminal enterprises. I think thats where the dividing line is, though I 
see this huge overlap of skills."

Tom Casady, Chief of Police, 
Lincoln, Nebraska

What Does this Mean for Police Chiefs?

At this point, you might be thinking that this description does not exactly match your police 
department and decide there is no point in reading further. With a little reflection, however, this 
scenario may be more common than you think. Ive been fortunate enough to see Compstat meetings 
on three continents, and the common situation is one where a crime analyst shows maps 
of crime on a screen and senior officers discuss crime problems and possible solutions. Rarely 
do they refer to an intelligence officer because intelligence analysts are generally not present, 
even though accurate and timely information is a central tenet of the Compstat process. On the 


other hand, I have also had numerous conversations with intelligence officers who have extensive 
knowledge of the activities of individuals and gang members in their jurisdiction but who 
are unable to identify the high-crime areas or significant crime problems in the same area; their 
knowledge is specific to the offenders with which they are familiar. In the end, the losers are the 
police executives who have to make decisions based on an incomplete picture of the criminal 
environment, and, ultimately, the public. 

"Intelligence and crime analysts are not in the same arena as far as chain of 
command. The directives do not say otherwise and, while crime analysts may provide 
information to the whole department, intelligence analysts do not because there is no 
mandate to do so, outside of their section."

Mary Garrand, Crime Analyst Supervisor, 
Alexandria, Virginia, Police Department

The problem is a lack of integration of intelligence analysis and crime, or problem, analysis. 
An integrated model of criminal intelligence information and problem analysis was first proposed 
by the U.K. Home Office in the 2000 report, Calling Time on Crime. It noted that while initial 
investigation into a crime is always undertaken, effective problem solving also requires the routine 
consideration of related intelligence (HMIC 2000, 86). While not explicitly linking crime 
analysis with intelligence, the report effectively proposes this by linking intelligence analysis with 
problem solving. As Boba (2003, 33) points out, for problem analysis to function effectively, analysts 
should have access to intelligence information. Problem solving therefore requires access to 
both crime analysis and criminal intelligence. An integrated model is necessary to fulfill this vital 
crime reduction role, yet it is rare to find a police agency that employs this integrated model. 

The problem, as it currently exists in a number of jurisdictions, can be demonstrated diagrammatically, 
as shown in Figure 2, which shows a generalization of much of the fields of criminal 
intelligence and crime analysis. At the tactical level, crime analysts concern themselves with 
mapping and analyzing crime incidents and events that are usually the concern of uniformed 
police officers. At the same tactical level, criminal intelligence analysts are interested in case support 
and getting a better picture of the activity of known offenders, often with the short-term aim 
of securing a conviction. At the operational level of analysis, crime analysts are concerned with 
crime patternsthe clustered activities that suggest the necessity for resourcing issues for police 
departments. On the criminal intelligence side, the issue is on understanding and charting the 
activities of organized crime groups and gang activity. Even at the strategic level, it can be argued 
that there are two different foci. The crime analysis field is interested in understanding the causes 
and effects of significant crime and disorder problems, while the criminal intelligence analyst is 
interested in identifying systemic weaknesses and vulnerabilities in the structure of society and 
how organized crime groups are exploiting these opportunities. While Figure 2 is a generalization, 
it is drawn from extensive research and communication with analysts from both sides of the 
equation and from discussion with forum participants. It demonstrates that many police agencies 
are operating an isolated analysis model.

In this picture, the two analytical fields operate independently at tactical, operational, and 
strategic levels without interacting with each other. Information that is gleaned from the crime 


analysis field is often disseminated to chiefs, executives, and even patrol officers, yet it sometimes 
lacks the contextual information that would allow for more focused operations. Conversely, 
criminal intelligence is often disseminated only within a single unit, resulting in an information 
silo. This aids short-term operational security and can assist an investigation, but the value of the 
rich texture that often comprises criminal intelligence is lost to the rest of the department, ultimately 
hindering attempts to take a more holistic approach to crime reduction. Many agencies 
have access to both but keep crime analysis and criminal intelligence compartmentalized so that 
criminal intelligence remains locked up in the heads of analysts and investigators and is never 
employed to make more sense of the broader patterns of criminality in the jurisdiction. 

Figure 2. Isolated crime and intelligence analysis model


What is an Integrated 
Analysis Model?

An integrated analysis model aims to integrate crime information with criminal intelligence so 
that police agencies are able to see the complete picture of the criminal environment. This blend 
of information about criminal activity and the offenders who are committing crimes creates the 
possibility for a holistic approach that allows for the most appropriate community- and problem-
oriented solutions to crime problems. By having access to both offender and offense intelligence, 
police agencies are more likely to design an effective response that addresses the problem or tackles 
the organizations responsible for the crime problem. 

It is often the case that the outcome of criminal intelligence is a target for arrest, while the 
outcome of crime analysis is a geographic area for targeted patrol; however, these end results are 
more a response to the limitations of the available analysis. If crime analysis is only able to suggest 
places and times of criminal activity, then a place/time-based response is often all that is 
available. Criminal intelligence lacks a crime focus and concentrates on offenders, so the result 
is therefore usually a target package. Without an integrated model, the outcome is a self-fulfilling 
prophecy depending on the analysis model chosen. 

A holistic approach to crime and criminal analysis will identify offenders for targeting, as well 
as places and times for a problem-oriented response. An integrated analysis model could provide 
police chiefs and operational commanders with a better picture of the criminal environment and, 
as a result, more options for reducing crime. 

"I think there has been a failure to explain in plain, simple terms the benefits of 
merging these two functions. We just havent clearly explained why it makes sense for 
those units to function as though they were one."

Tom Casady, Chief of Police, 
Lincoln, Nebraska

Figure 3 shows the types of output police executives and crime prevention decision makers 
could expect from an integrated crime and intelligence analysis model. Instead of the crime analysis 
and criminal intelligence functions acting independently and supporting decision makers in an 
unintegrated fashion, decision makers could expect and demand crime information that is placed 
in a context of offenders in the area, and offender-related intelligence that can use recorded crime 
to estimate the impact of offender activity. 


In Figure 3, both crime analysis and criminal intelligence feed into a central pool that provides 
the most complete picture of the criminal environment. At the tactical level, the actionable 
intelligence is likely to provide viable targets for law enforcement attention. These targets could 
be individuals or particular locations that are vulnerable to criminality; however, the point is that 
with a complete picture of criminal activity, decision makers are able to determine if they have 
the capability to focus on offenders or on their activities. At the operational level, decision makers 
are able to determine the most appropriate use of resources and which priorities are the most 
pressing. Drug and organized crime activity can be assessed alongside traffic enforcement and 
public order issues in an environment where resources are distributed based on the broader needs 
of the community and with the full knowledge of the capabilities of the department, rather than 
isolating criminal intelligence decisions and crime problem priorities. At the strategic level, long-
term problems associated with systemic weaknesses (often the target of strategic criminal intelligence) 
are indistinguishable from the impact of long-term crime problems (the target of strategic 
crime analysis). In other words, strategic crime analysis and strategic intelligence analysis end up 
approaching the same problem from different directions. Indeed, it is with strategic intelligence 
analysis that the blending of criminal intelligence and crime analysis has often been the most successful, 
albeit also the most underutilized by decision makers. 

How Might an Integrated Model Work?

First, it should be said that an integrated model will only become effective with strong leadership. 
Police executives have to be clear about why they wish to coordinate information resources from 
the crime analysis and criminal intelligence sides and, furthermore, they have to be clear about 
how they want to do it. This is a task that is unlikely to succeed if delegated far from the top of the 
hierarchy because police culture still perceives benefits in withholding criminal intelligence from 
the rest of the police department and sees delegation downward as an indication of lack of commitment. 
For police executives to commit to this new model requires understanding its benefits. The 
following examples demonstrate the benefits of bridging the gap between these two fields.

Consider the police chief who has received an injection of funds from the city budget for 
police overtime. In an isolated information environment, crime priorities become clear during 
a Compstat meeting where crime analysts identify crime problems around the city. At the same 

Figure 3. Integrated crime and intelligence analysis model 


time, the chief receives a briefing from the intelligence unit about the growth of gang activity and 
organized crime groups that are moving into the city. How are these competing priorities to be 
reconciled? In separate briefings with separate analytical units conducting the analyses, resolving 
this dilemma is not possible. In an integrated analytical model, the chief would receive a briefing 
that identified the high-crime priorities for the city along with the organized crime groups and 
gangs most likely to be responsible. Instead of having to split resources and possibly try and fund 
two separate activities, the police chief now has the option to target uniform and detective activity 
to an area of the city where crime is increasing and where there is significant gang activity. 

Another example further demonstrates the value of an integrated model. Consider a police 
district that is being plagued with domestic burglaries. The crime analyst is able to map the crime 
patterns and extract descriptions of the goods stolen and the times of the offenses. The map 
shows some clustering of offenses but nothing that would suggest any one particular offender. 
Mapping of all known offenders with previous convictions for burglary creates too many possible 
matches to enable police to mount a significant, offender-targeted, proactive operation, so 
the command makes a decision to conduct directed patrols in the area of the burglaries. At the 
same time, the intelligence unit, which has no communication with the crime analysts, is keeping 
up regular contact with drug users in the area. However, unaware of the burglary problem that is 
affecting one area in the city, they are unable to help solve the problem. 

In another district, a similar problem exists, but in this second district the intelligence unit is 
co-located with the crime analysts and both intelligence and crime analysts share the same briefing 
meeting with the chief. As the intelligence unit becomes aware of the problem, they interview 
confidential informants in the drug-user community and discover that a local pawnshop has 
started accepting stolen goods. A quick investigation of the pawnshop reveals that a significant 
quantity of the stolen property from the burglaries is being pawned at the shop, and this realization 
leads to an operational plan to arrest key offenders and fences. 

In the latter case, the integrated model succeeds because there is greater intelligence flow in 
an organizational environment that encourages cooperation and intelligence transfer between the 
problem identification component from the crime analyst and the contextual information that the 
intelligence unit can provide. While this may seem obvious, the vast majority of forum attendees 
agreed that this ideal scenario was one that they had rarely, if ever, seen. 

"When we talk about case support on the intelligence side, it is somewhat equivalent 
to the more tactical aspects of crime analysis, whereas the strategic analysis portion 
looks at patterns and overviews and problems and is more like the problem-oriented 
policing model. I think that one could bring them closer together and I think that we 
cant ignore any part of our information, whether that information is crime statistics 
or confidential informant data."

Marilyn Peterson, Intelligence Management Specialist, 
New Jersey Division of Criminal Justice, Department of Law and Public Safety

The integrated analysis model is beneficial because now, more than ever, senior law enforcement 
executives require a complete picture of the criminal environment. This is equally as important 


at the local level as in the national arena. Although crime has been falling in the United States 
for the better part of twenty years, it is still a significant factor in the daily lives of many citizens, 
and many areas are seeing increases in violent crime and increased stability and confidence in 
drug trafficking and drug markets. There is also the increased threat from terrorism, both international 
and domestic. 

The Benefits of an Integrated Analysis Model

"By linking these two equally important analytical functions, serial crimes and 
organized crime groups can be detected more quickly and more cases can be solved. 
The days of this is my information and you cant see it have to end. Separating 
crime and intelligence analysts within law enforcement agencies is a no-win situation." 

Mary Garrand, Crime Analyst Supervisor, 
Alexandria, Virginia, Police Department

The merging of the crime analysis and criminal intelligence functions in a police department 
would have a number of benefits to the overall operation of the department. 

 The big picture

Few law enforcement decision makers receive regular briefings from both intelligence 
officers and crime analysts. Generally their information flow tends to be dominated by 
one or the other. This is to the detriment of any attempt to gain a holistic picture of the 
criminal environment.

 Increased enforcement options

If crime analysts generally produce areas for targeted patrol, and intelligence analysts 
usually produce offender target packages, an integrated analysis can suggest a broader 
range of tactics and can give an operational commander the opportunity to weigh a 
greater number of options. 

 Cheaper in the long run

While there may be some initial costs involved in merging functions, there will be long-term 
benefits from merging databases, software, and computing resources, as well as training. The 
impact on crime reduction activity will also extend a benefit to the community.

 A fluid response to crime

Offenders do not compartmentalize their criminal activity. This should be obvious to 
anyone who has examined the criminal records of most offenders. They often have 
previous convictions for drugs, vehicle-related crime, property crime, and violent 
offending. Why then should the analytical arm of the police department respond by 
compartmentalizing the analysis function?

 A realistic analysis model

Members of gangs and organized criminal enterprises are of interest to law enforcement 
because they commit crime, but much of that recorded crime is analyzed by crime 


analysts. It is more realistic to examine both crime patterns and individual behaviors 
together.

 A single point of contact for interagency communication
 
Communicating between agencies within law enforcement is often hampered by the 
bewildering array of individual analytical units that larger agencies often have. For 
example, agencies might have narcotics, street gang, and robbery intelligence units, as 
well as a Compstat unit. The integrated model removes their barriers and increases the 
opportunities for better coordination with outside agencies. 

These benefits may not be easy to achieve, however beneficial they may seem. The following 
section lists a number of the potential hindrances raised by participants at the forum.


Hindrances to 
Integrated Analysis

"A novice could see that the merger of these two information sets [crime analysis and 
criminal intelligence] is natural, practical, and beneficial. The agency or the analysts 
themselves may have erected walls between them but these walls are artificial and 
should be dismantled."

Christopher Bruce, Crime Analyst, 
Danvers, Massachusetts, Police Department

Potential Barriers

The following is a list of items identified by forum participants as potential barriers to 
integrated crime and intelligence analysis.4 

 Civilians within the law enforcement environment

Group members felt that civilians were often treated as second-class citizens and were 
often deemed not worthy enough to have access to intelligence, a commodity associated 
with a degree of prestige. This has a significant impact on the information deemed by 
intelligence analysts (often sworn personnel) as sharable with their (often civilian) 
colleagues in crime and problem analysis. 

 Different missions

In many agencies, intelligence units and crime analysis units have significantly different 
mission statements, such that interaction is difficult and not complementary to the 
activities of either unit. They are often assessed in vastly different ways and have 
different definitions of what constitutes success. Cooperation is therefore a low priority. 

 Terminology

Within both the intelligence and crime analysis fields, conflicts regarding terminology 
hinder better cooperation. In reality, terminology confusion is also a factor within 
individual branches of analysis as much as between the different fields. For example, 
the International Association of Law Enforcement Intelligence Analysts has a separate 
definition for crime-pattern analysis, criminal analysis, and criminal intelligence. 

4 The list is presented in no particular order and with the caveat that not everyone 
subscribed to each item or felt that particular items related to their specific agency.


 Invulnerability

There is a belief in both quarters that they do not need each other. Intelligence units 
support their own areas and crime analysts do likewise. Without a wider accountability 
mechanism, both sides of the analytical framework can survive without having to 
cooperate or share information.

 Case-by-case thinking

There is a tendency for both intelligence and crime analysts to defer to a tactical frame 
of mind. For crime analysts, this can be minimized down to a number of potentially 
linked cases, while for intelligence analysts this subverts to investigative support. On 
both sides, the case focus loses sight of the big picture, though this is clearly an issue 
predominantly for intelligence officers. 

 Isolated thinking

A number of participants noted that in the post-9/11 environment there is a fixation 
with secrecy, such that agencies that have struggled to gain access to classified data 
subsequently classified all of their information both internally and externally to the 
same level. This was perceived to be an example of excessive transfer of secrecy. Again, 
this is largely an issue for criminal intelligence officers. 

 Perceived legal constraints

A lack of familiarity with 28 Code of Federal Regulations (CFR) Part 235 leads many 
intelligence analysts to be overly cautious in their handling of potentially sensitive 
information. This results in both compartmentalization and silo thinking, though 
this was seen as less of a problem for crime analysts, who are used to sharing and are 
expected to share their intelligence products around the police department. 

 Compartmentalization

The sudden growth in the numbers of analysts across the police information field 
has sparked sufficient numbers to generate specialization. General analysts, both 
intelligence and crime, are sometimes subdivided into specializations in vehicle theft 
or organized crime. This compartmentalization has reinforced the isolated thinking of 
individual analysts. 

 Lack of leadership

While the fields of intelligence and crime analysis have done a moderately successful 
job of creating training opportunities and educational possibilities in crime and 
intelligence analysis, the broader field of police leadership has failed to train police 
managers in how to understand and use intelligence. As a result, many police 

5 Commonly known as 28CFR23, this is a set of guidelines and standards for law enforcement agencies that operate federally 
grant-funded, multijurisdictional criminal intelligence systems. As such, the guidelines do not relate to individual agencies 
that are not multijurisdictional in nature (even if they occasionally collaborate with other agencies), or agencies that do not 
receive federal grant funding. The guidelines do not create mandatory rules on how the standards should be implemented. The 
guidelines cover areas such as the entry, maintenance, and purging of criminal intelligence files.


executives are often unaware that they are seeing only part of the picture if they receive 
crime analysis that lacks an intelligence context, or an intelligence briefing that lacks 
the crime activity context. 

 Lack of training

Trainingor more specifically the lack of trainingis a perennial issue for law 
enforcement agencies in many countries. In the U.S. the situation for crime analysts is 
particularly troubling with little training being offered beyond the basic, introductory-
level data manipulation skills necessary for entry-level analysts (O'Shea and Nicholls 
2003).

 Technology constraints

Intelligence and crime databases are often structured differently and this results in 
incompatibility. Intelligence databases emphasize the linking of individual offenders 
into organized groups, while crime databases are most informative when analyzing 
aggregate crime patterns. In the absence of industry standards for data collection and 
storage, individual agencies are often hampered if they wish to share information with 
neighboring agencies, and indeed are often unable to pass information internally either. 

 Education

Police executives are often unaware of how to use and implement operation plans 
from intelligence and crime analysis products because they are unaware of the role of 
analysts. They are also unaware of what tactics do and do not work for effective, long-
term crime reduction. It is also true that intelligence officers are often unfamiliar with 
the role and purpose of the crime analyst and vice versa.

 Organizational structure

The rapid introduction of crime analysts into the organizational structure of police 
departments has not been matched by an equally rapid restructuring of the thinking 
of police departments to assimilate this new information source. While intelligence 
analysis has been around policing for a long time, albeit compartmentalized and 
shoehorned into operational units, crime analysis has still to find its niche. It is seen as 
both a valuable tool and a threat, often within the same police department. 

At one [police department], I saw the crime analysis unit and the intelligence unit 
work as two separate functions. They never interacted, not even at the Compstat 
meetings.

Jason Elder, Crime Analyst, 
Baltimore/Washington High Intensity Drug Trafficking Area (HIDTA)

A number of themes underpin these issues, including organizational dynamics, technical 
problems, and culture. For the crime information arm of a law enforcement agency to function at 
an optimal level, and for the agencys executives to have access to the best intelligence available, 
each of these three themes must be addressed. 


"We have our analysts working together in a coordinated sense but it has taken a lot of 
work to get to that stage." 

Kent Mawyer, Chief, Criminal Law Enforcement Division, 
Texas Department of Public Safety 

Law enforcement organizations are not isolated structures that are allowed to dictate their 
own working environment and conditions immune from outside influence. Newcomers to policing 
often find that the organizational dynamics of police agencies can be cumbersome to understand 
and difficult to navigate. The range of external stakeholders that can have an impact on 
operational decision making is significant and includes other law enforcement agencies, political 
figures, and community groups. It has been argued that these outside influences have resulted in 
police organizations that do not necessarily structure themselves for the demands of the primary 
mission of crime control but organize their structure more to reflect the demands of external and 
internal influences (Crank 2003; Crank and Langworthy 1992). If this is the case, then articulate, 
evidence-based calls for greater crime analysis or intelligence resources, or a reorganization of an 
existing structure to improve efficiency, may not necessarily succeed in attaining departmental 
approval. Internal opposition to the blending of crime analysis and intelligence may be strong 
enough to convince executives to keep these complementary functions isolated, even in the face 
of a strong argument to the contrary. Opposition may be encountered due to perceived loss of 
status or influence by some parties, or because of any one of the many hindrances to the merging 
of crime analysis and intelligence outlined earlier in this section. 

Technical problems seem to plague every police department. The rapidity with which technology 
advances always appears to leave many aspects of policing operating in a proverbial dark 
age. Nowhere is this more apparent than in crime analysis and intelligence, both areas that make 
significant technological demands. For agencies that have dedicated intelligence staff or who have 
dedicated investigators of organized crime, electronic access to one of the Regional Information 
Sharing Systems (RISS) can be beneficial but comes with additional technological demands. For 
agencies wishing to mimic the New York City Police Departments Compstat approach, investment 
in geographic information systems (GIS) software, data, and training is a requirement. 
This results in two, related problems. First, agencies may purchase different software solutions 
for intelligence analysis and crime analysis, and, secondly, agencies may decide to limit access 
to the different systems. Once agencies start to differentiate clearances between staff based on 
their being crime or intelligence analysts, or on their being sworn or civilian, the technical issues 
increase. This is sometimes used as a backdoor way to keep intelligence and crime analysis units 
separate.

Of all of these hindrances to an integrated analysis model, none is more powerful than the 
inhibiting effect of police culture.

Police Culture

Culture plays a substantial part in how police departments function. As Goldstein (1990, 29) 
noted, Police departments have a life of their own. Powerful forces within the police establishment 
have a much stronger influence over the way in which a police agency operates than do the 


managers of the department, legislatures and courts, the mayor, and the members of the community. 
According to Ritchie Martinez, a former president of the International Association of 
Law Enforcement Intelligence Analysts, as intelligence analysts began to emerge in law enforcement 
agencies in the 1970s, sworn officers were usually employed for these trusted positions 
(Loyka, Faggiani, and Karchmer 2005, 25). The notion that the intelligence analyst is a trusted 
position, one that is unavailable to civilian personnel, still pervades law enforcement to a considerable 
degree. Unfortunately for many police chiefs, this attitude seems to also extend to the data 
that they analyze and the intelligence that they produce. Given the range of sensitive information 
that crime analysts are now routinely exposed to, this silo mentality about criminal information 
and intelligence as a precious commodity to which few should have access, even within law 
enforcement, appears to have little justification and is a significant hindrance to effective decision 
making. 

The outcome of this historical legacy is an artificial distinction between information that 
relates to incidents (crime information) and information that relates to suspected individuals 
(criminal information). The unnecessary but common segregation of crime analysis and criminal 
intelligence analysis results in products that are not complementary and holistic because they are 
often lacking the contribution that the other half of the equation could provide. Decision makers, 
patrol officers, and the public are the ultimate losers. 

"We have very few incidents where somebody has compromised our information. I 
think departments do a lot more damage by compartmentalizing their information 
and protecting the information from the people who really need itthe officers."

Tom Casady, Chief of Police, 
Lincoln, Nebraska

In the next section, forum participants provide mechanisms that may enable an organization 
to overcome the hindrances to an integrated analysis model. 


Jumpstarting 
Integrated Analysis

Separate intelligence and crime data will only hinder detectives, analysts, and 
commanders from making informed decisions regarding criminal activity in their 
jurisdictions.

Mary Garrand, Crime Analyst Supervisor, 
Alexandria, Virginia, Police Department

Listed below are some ways in which a police department can move towards an integrated 
analysis model. 

 Become intelligence-led

Instill attitudes within the organization that value objective intelligence and analysis. 
If the police department is a largely reactive department with little capacity to explore 
more productive methods of crime control, then there is little value in an integrated 
analysis model. Indeed, in such an environment there is little value in intelligence. 
Innovative and reflective departments will need to become more objective in their 
decision making, and instilling this attitude from the top to the bottom is essential in 
fostering an intelligence-focused attitude among all levels of the organization.

 Police chiefs should work closely with analysts

Police chiefs have to spend time with analysts. This will result in better analysis and 
better products, and will engender a culture within the department that recognizes the 
work of analystswhere the chief spends time sends a signal to the department.

It does help change the culture when you have analysts reporting directly to the chief 
or sheriff because everybody sees that analysis is important to the agency head and 
they have more respect for it and the people who perform the analyses.

Julie Martinez, Senior Criminal Intelligence Analyst, 
Hillsborough County, Florida, Sheriffs Office

 Co-locate analysis and intelligence functions close to decision makers

 
Recognize the value of regular, formal and informal contact between people who 
dictate policy and those who supply them with their information. The physical 
location is as important as the organizational location: analysts must have regular 


access to each other and to decision makers or the aim of a more intelligence-led 
organization cannot be met. 

 Articulate the analytical vision within the police department

By describing an aim to combine crime analysis and criminal intelligence, the 
department makes a formal statement of its analytical aim. As soon as this is done, the 
value of combining crime and intelligence analysis should become more obvious and it 
will enable the analytical arm of the department to keep the big picture in sight.

 Make the case for integrated analysis

Many police executives learned their trade many years ago when crime analysis did not 
exist and criminal intelligence was a largely irrelevant division within the department. 
Consequently, they may not have been trained to appreciate the bigger decision-making 
options that become available with a more complete picture of crime and criminality. 
It is not sufficient to say what should happen; you have to demonstrate the value that 
flows from greater integration. 

 Create integrated reporting mechanisms

Formalize the connection between all analysis that takes place and the decision makers 
in the police department. It is not sufficient to have both intelligence briefings and a 
Compstat process. They must be integrated so that contextual information from both 
sides is always available. 

 Develop informal information-exchange mechanisms

Although it is nice to think that formal organizational structures can create effective 
crime intelligence analysis, decision makers should recognize that informal information 
exchanges still dominate both the crime analysis and criminal intelligence worlds. 
Recognize the value of informal information gathering. Analysts need to have a direct 
line of communication with decision makers, but they also need to have a mechanism 
to gather information from a variety of sources. Both intelligence and crime analysts 
have to be able to develop relationships with patrol officers and investigators and earn 
their trust.

 Consciously collect feedback and respond to criticisms

Track what happens to intelligence and analytical products to see if decision makers are 
using all of the criminal environment information provided to them. Analysts should 
document what they give to their commanders in terms of products and analyses and 
see what is done as a result.

 Create an analysis users group

Bridging the gap between crime analysis and intelligence is likely to create some initial 
teething problems in terms of analysis products and these can be resolved by focusing 
on the primary activitythe dissemination of useful analysis to decision makers. An 
analysis users group can help identify the products that may be helpful for the law 
enforcement executive. 


 Get over the whole security issue

The vast majority of information that is gathered by police departments is not so 
secret that it cannot be revealed to other analysts and people responsible for deciding 
crime-reduction strategy. There is a perceived informational hierarchy that often exists 
whereby sub-units do not want to work with other analysts because they deem their 
information to be super sensitive. This attitude is often derived from a misreading of 
the regulations as they pertain to 28 Code of Federal Regulations (CFR) Part 23, or 
out of a fixation with the perceived mystique and drama of intelligence work. It is also 
sometimes simply because analysts think that their information is too important to 
share. It is also sometimes related to the issue of civilians in a sworn police department 
(as discussed in other parts of this report), and sometimes it is because particular sub-
units within a police department receive more attention and support than others. These 
attitudes are unhelpful to the aim of making informed decisions about crime reduction 
and are ultimately harmful to the general public. 

 Develop technology solutions but do not fixate on them

There is a tendency in policing to believe that technology will overcome organizational 
and cultural barriers. Technological solutions to data management will certainly help 
but will not be able to address all of the concerns noted in this report. As Collier and 
colleagues noted in relation to improving communication in a British police force, 
Without addressing the cultural barriers, an investment in technology may not yield 
the appropriate changes in behavior. To achieve this, technology needs to be integrated 
with working practices in order to reduce organizational reliance on informal methods 
of communication (Collier, Edwards, and Shaw 2004).

 Be realistic about what can be achieved in your department

If you work in a small police department, then it is realistic to expect that both 
the intelligence and crime analysis functions will often be combined in the job 
description of one or two individuals, and that tactical products will dominate the 
information requests. However, mid-size and large departments should strive for greater 
incorporation of crime analysis and criminal intelligence, especially if they find that 
narcotics or counter-terrorism units are located remotely from crime analysts. This will 
help with their operational and strategic planning. 


Expecting More 
from Analytical Thinking

"We have many of the necessary tools. We now need people to understand how to use 
them to bring down crime."

Sergeant Mark Stallo, Financial Investigations Unit, 
Dallas, Texas, Police Department

The purpose of this report was to identify why it is fundamental to creating safer communities 
that police departments move beyond current organizational complexities and integrate 
information that they receive about crime and criminals. It has been argued herein that integrated 
analysis is necessary in order to give decision makers the most accurate picture of criminals and 
the crimes they commit so that a holistic picture of the criminal environment is available. The 
public has a right to expect that the people charged with protecting them will appropriately use 
intelligence and crime analysis in ways that will ensure their safety and security. That many police 
departments are not structured to achieve this end jeopardizes the safety and security that the 
community deserves and may expect in a community-policing environment. The central theme 
throughout this report has been the vital role of leadership to effect the necessary changes. Without 
strong leadership within law enforcement, none of what is proposed here is likely to occur. 

As forum participant Mary Garrand commented, The public, and indeed many within policing, 
think that we do this already. There are few calls for local police to move towards an integrated 
analysis solution because they think we are there already. Closer inspection of many police departments 
would reveal a less palatable truth. An integrated analysis model is essential if police are to be 
able to articulate to community partners the pressing issues of today and tomorrow. The relationship 
to community partners is a significant part of many problem-solving approaches to crime problems. 
The U.K. Home Office, when considering the benefit of an integrated model, recommended that: 

In the development of an integrated model for crime and disorder reduction, 
there is a need to embrace problem solving and effective intelligence to identify:

 
The different and complementary contributions that partners can make.

 
The intervention or combination of interventions that would be most 
appropriate to the problem. (emphasis added, HMIC 2000, 91). 

The inclusion of information from disparate community sources complicates the picture 
further but will be an essential step in the protection of communities and the protection of the 


homeland. Solutions to complicated crime problems can be found in strategies such as problem-
oriented policing but only if executives have access to intelligence and the evidence necessary to 
drive action in a responsible, proactive manner. Modern policing requires a more objective understanding 
of the criminal environment, an understanding that is grounded in data rather than 
the traditional police officers gut feeling A sensible solution is to combine knowledge of offenders 
from intelligence-led approaches with knowledge of crime problems from problem-oriented 
policing initiatives, so that policing can focus on the right targets, be they problems or people. As 
Michael Townsley and colleagues have noted:

If a defining characteristic of problem-oriented policing is its being evidence-based, 
it would be necessary to ensure that adequate resources are allocated to intelligence 
units so that different forms of evidence can be assembled and triangulated, and that 
the members of these units acquire problem-oriented policing heads (Townsley, 
Johnson, and Pease 2003, 197).


Developing Integrated Analysis: 
Checklists for Action

Checklist for Executives

 Know what intelligence-led really means and strive to achieve it

 Invest in training for yourself to understand intelligence-led policing

 Co-locate analysts and intelligence officers close to your office

 Always meet with analysts and intelligence staff together

 Work with analysts to articulate a vision for analysis in the department

 Send the signal that these functions are important

 Become more focused on repeat offenders and persistent problems

 Invest in joint training opportunities for intelligence officers and crime analysts

 Educate all officers about the importance of building trust with the community and 
what they should do with information they learn from those relationships

Checklist for Analysts

 Build connections with decision makers and other analysts

 Help your decision maker understand the big picture and develop more strategic 
products

 Learn about problem-oriented policing and apply this approach to solve long-term 
problems

 Organize cross-training so that analysts can appreciate the work of intelligence officers 
and vice versa

 Share intelligence for the common good

 Work to integrate databases and avoid duplication of effort


Resources

Analysts and executives may find the following resources useful in moving forward toward an 
integrated analysis model.

Boba, R. (2003). Problem Analysis in Policing. Washington DC: Police Foundation. Available to 
download from http://www.policefoundation.org/pdf/problemanalysisinpolicing.pdf

Carter, D. L. (2004). Law Enforcement Intelligence: A Guide for State, Local, and Tribal Law Enforcement 
Agencies. Washington, DC: Office of Community Oriented Policing Services, U.S. Department of 
Justice. Available to download from http://www.cops.usdoj.gov/files/ric/Publications/leintelguide.pdf 

Clarke, R. V., and Eck, J. (2005). Crime Analysis for Problem Solvers in 60 Small Steps. Washington, 
DC: Office of Community Oriented Policing Services, U.S. Department of Justice. Available to 
download from http://www.popcenter.org/Library/RecommendedReadings/60Steps.pdf 

IACP (2002). Criminal Intelligence Sharing: A National Plan for Intelligence-Led Policing at the Local, 
State, and Federal Levels. Alexandria, VA: Office of Community Oriented Policing Services and 
the International Association of Chiefs of Police. Executive summary available to download from 
http://it.ojp.gov/documents/NCISP_executive_summary.pdf

Loyka, S.A., Faggiani, D.A. and Karchmer, C. (2005). The Production and Sharing of Intelligence: 
Vol. 4. Protecting your Community from Terrorism. Washington, DC: Office of Community Oriented 
Policing Services and the Police Executive Research Forum. Available to download from 
http://www.cops.usdoj.gov/mime/open.pdf?Item=1438

Peterson, M. (2005). Intelligence-Led Policing: The New Intelligence Architecture. Washington, DC: 
Bureau of Justice Assistance. Available to download from http://www.ojp.usdoj.gov/BJA/pdf/
IntelLedPolicing.pdf 

Ratcliffe, J.H. (Forthcoming 2008). Intelligence-Led Policing. Cullompton, Devon, UK: Willan 
Publishing.

Scott, M.S. (2000). Problem-Oriented Policing: Reflections on the First 20 Years. Washington, DC: Office 
of Community Oriented Policing Services, U.S. Department of Justice. Available to download from 
http://www.popcenter.org/Library/RecommendedReadings/Reflections.pdf

Global Justice Information Sharing Initiative. (2006). Fusion Center Guidelines: Developing and 
Sharing Information and Intelligence in a New Era: Executive Summary. Available to download from 
http://www.iir.com/global/products/fusion_center_executive_summary.pdf 


References

Boba, R. 2003. Problem Analysis in Policing. Washington, DC: Police Foundation.

Boba, R. 2005. Crime Analysis and Crime Mapping. Thousand Oaks, CA: Sage.

Canter, D., Coffey, T., Huntley, M., and Missen, C. 2000. Predicting serial killers home base using a 
decision support system. Quantitative Criminology, 16(4), 457478.

Christopher, S. 2004. A practitioners perspective of UK strategic intelligence. In J. H. Ratcliffe (Ed.), 
Strategic Thinking in Criminal Intelligence (First ed.). Sydney: Federation Press.

Collier, P. M., Edwards, J. S., and Shaw, D. 2004. Communicating knowledge about police 
performance. International Journal of Productivity and Performance Management, 53(5), 458467.

Crank, J. P. 2003. Institutional theory of police: a review of the state of the art. Policing: An 
International Journal of Police Strategies & Management, 26(2), 186207.

Crank, J. P., and Langworthy, R. 1992. Institutional perspective on policing. Journal of Criminal Law 
and Criminology, 83(2), 338363.

Eck, J. E., and Spelman, W. 1987. Problem Solving: Problem-Oriented Policing in Newport News. 
Washington DC: Police Executive Research Forum.

Goldstein, H. 1990. Problem-Oriented Policing. New York: McGraw-Hill.

HMIC. 2000. Calling Time on Crime. London: Her Majestys Inspectorate of Constabulary.

Lersch, K. M. 2004. Space, Time, and Crime. Durham, NC: North Carolina Press.

Loyka, S. A., Faggiani, D. A., and Karchmer, C. 2005. The Production and Sharing of Intelligence: Vol. 4. 
Protecting your Community from Terrorism. Washington, DC: COPS/PERF.

OShea, T. C., and Nicholls, K. 2003. Crime Analysis in America: Findings and Recommendations (Final 
report). Washington, DC: Office of Community Oriented Policing Services.

Ratcliffe, J. H. 2004. The structure of strategic thinking. In J. H. Ratcliffe (Ed.), Strategic Thinking in 
Criminal Intelligence (pp. 110). Sydney: Federation Press.

Rossmo, D. K. 2000. Geographic Profiling. Boca Raton, FL: CRC Press.

Santtila, P., Zappala, A., Laukkanen, M., and Picozzi, M. 2003. Testing the utility of a geographical 
profiling approach in three rape series of a single offender: A case study. Forensic Science 
International, 131, 4252.

Scott, M. S. 2000. Problem-Oriented Policing: Reflections on the First 20 Years. Washington, DC: Office 
of Community Oriented Policing Services.

Townsley, M., Johnson, S., and Pease, K. 2003. Problem orientation, problem solving and 
organizational change, Crime Prevention Series. Vol. 15 (pp. 183212). Monsey, NY: Criminal 
Justice Press.


Biographies of Participants 
in the Forum on Intelligence 
and Crime Analysis 

(Titles and affiliations were current at the time of the forum and may have changed.)

Christopher Bruce has been a crime analyst for twelve years, seven at the Cambridge (MA) Police 
Department, and the last five at the Danvers (MA) Police Department. He has served as the vice president 
of administration for the International Association of Crime Analysts since 2000, and he was president of 
the Massachusetts Association of Crime Analysts from 2000 to 2004. Bruce teaches crime mapping and 
analysis and has edited and authored several publications.

Tom Casady began his law enforcement career as a police officer in Lincoln, Nebraska, in 1974, and has 
served as chief of police since 1994. He received a bachelors degree in criminal justice from the University 
of Nebraska-Omaha, and an M.A. in political science from the University of Nebraska-Lincoln. Chief 
Casady has coordinated several police technology projects focusing on communications, information systems, 
mobile data systems, and geographic information systems. 

Jason Elder has worked for the Washington/Baltimore High Intensity Drug Trafficking Area (HIDTA) 
since 2001, and is currently an intelligence analyst assigned to the Case Support Unit working with 
agents from the FBI, DEA, and ATF investigating narcotics in various HIDTA initiatives. Prior HIDTA 
assignments included writing strategic intelligence reports on methamphetamine, PCP, and prison gang 
parolees, and working with the Baltimore City Police Department analyzing and writing intelligence 
reports on homicides and shootings. He has an M.S. in criminal justice from the University of Cincinnati, 
and a bachelors in criminal justice from Edinboro University of Pennsylvania, where he graduated 
cum laude.

Mary Garrand supervises the crime analysis unit for the Alexandria, Virginia, Police Department., where 
her duties include overseeing the tactical analysis of crime series and strategic analysis of crime trends. She 
serves as the training coordinator for the International Association of Crime Analysts (IACA) and training 
representative for the Virginia Crime Analysis Network (VCAN). She is an instructor for NLECTCs Crime 
Mapping and Analysis Program (CMAP) and teaches crime mapping and analysis in George Mason Universitys 
Continuing Education Program. Ms. Garrand holds a M.S. in justice, law, and society from American 
University and a B.A. from Fordham University.

Julie Martinez serves as the senior criminal intelligence analyst for traffic crash analysis for the Hillsborough 
County, Florida, Sheriffs Office (HCSO), where she has worked for thirteen years. She serves as a 
liaison between her agency and other county and state law enforcement and government agencies, as well 
as community action groups. She was instrumental in establishing the Sheriffs Crime Information Strategy 
System (SCISS), the HCSOs Compstat program. Julie holds a bachelors degree in criminology from the 


University of South Florida, and graduated from Floridas Law Enforcement Analyst Academy as a Certified 
Law Enforcement Analyst.

Kent W. Mawyer is chief of the Criminal Law Enforcement Division for the Texas Department of Public 
Safety, where he is responsible for overseeing operations of the agencys specialized services of narcotics, 
criminal intelligence, motor vehicle theft, and the crime laboratory. Prior assignments during his 29-year 
tenure include assistant chief of the division, investigator in the motor vehicle theft service, and major 
in charge of special projects. He has a B.S. in criminal justice, an M.P.A., and is a graduate of the Leadership 
Command College at Sam Houston State University and the FBI National Academy. He is the past 
president of the Texas Association of Vehicle Theft Investigators and the International Association of Auto 
Theft Investigators. He is actively engaged in the U.S. Department of Justices Global Advisory Committees 
Global Intelligence Working Group.

Deborah Osborne is a crime analyst at the Buffalo, New York, Police Department and a member of the 
FBI/Police Futurists International Futures Working Group. She was elected second vice president of the 
Society of Police Futurists International and was a remote research fellow for the Center for Strategic Intelligence 
Research, Joint Military Intelligence College, DIA, in 20042005. She is the author or co-author of 
a number of books and articles on intelligence analysis and crime analysis and has taught at the university 
level. Ms. Osborne holds a B.A. in psychology and an M.A. in social policy from Empire State College, State 
University of New York.

Marilyn B. Peterson worked for the New Jersey Division of Criminal Justice from 1987 until 2005, and 
served in a number of capacities including intelligence management specialist. She is currently an instructor 
in the Joint Military Intelligence Training Center (JMITC ) Analytic Branch in Washington, D.C. Ms. 
Peterson has authored numerous publications on criminal intelligence analysis and has taught intelligence 
and analysis in eight countries. She has a bachelors degree in criminal justice from Thomas Edison State 
College and a masters degree in education from Seton Hall University. She is past president of the International 
Association of Law Enforcement Intelligence Analysts (IALEIA), past chancellor of the Society 
of Certified Criminal Analysts (SCCA), and is a regent emeritus and fellow of the Association of Certified 
Fraud Examiners.

Debra J. Piehl is the CompStat director and senior analyst assigned to the Office of the Superintendent 
of the Massachusetts State Police (MSP). Prior to joining the MSP in 2004, she spent eight years at the 
Newton, MA, Police Department where she was responsible for implementing CompStat. Ms. Piehl serves 
as president of the Massachusetts Association of Crime Analysts. She holds a bachelors degree in journalism 
and political science from Valparaiso University and a masters degree in criminal justice from Anna 
Maria College.

Eileen Quibuyen is an intelligence analyst with the Federal Bureau of Investigation assigned to the Los 
AngelesField Intelligence Group. She has assisted with investigations ranging from violent gangs, organized 
crime, Innocent Images (child pornography), and counterterrorism for almost seven years., and 
has supportedseveral domestic and overseas missions, including the 2006 Summer Olympics in Athens, 
Greece. She holds a B.A. in criminology, law, and society from the University of California, Irvine.

Jerry H. Ratcliffe is an associate professor of criminal justice at Temple University. A former police 
officer from London (UK), he has previously taught criminal intelligence at the New South Wales Police 
College, and conducted research and evaluation of intelligence-led policing in Australia and a number of 
other countries. Dr. Ratcliffe has a B.S. and Ph.D. from the University of Nottingham and has published 
numerous books and articles on the topics of crime mapping, intelligence-led policing, and environmental 
criminology.


Sergeant Mark Stallo works in the Financial Investigations Unit of the Dallas Police Department. Since 
joining the DPD in 1979, he has served as a patrol officer and as a member of the crime analysis team. Sgt. 
Stallo is one of the founders of the International Association of Crime Analysis (IACA) and served as its 
president from 1994 to 2000. He is the author or co-author of a number of policing and crime analysis 
publications and teaches at the university level. He has a B.S. in criminal justice from the University of 
Cincinnati, and a M.S. in management and administrative science and a M.P.A. from the University of Texas 
at Dallas.


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