U.S. Department of Justice

Office of Justice Programs

National Institute of Justice

SEXUAL ASSAULT KITS

Using Science to Find Solutions

This document is a PDF version of an interactive web

poster. Visit at: http://NIJ.gov/unsubmitted-kits

shutterstock_43305892 artist: fotohunter
Table of Contents

OVERVIEW 3

SEXUAL ASSAULT KITS 4

ACTION RESEARCH 6

A TEAM EFFORT 7

DISCOVERING THE ISSUES 9

DNA TESTING 13

DETROIT FINDINGS 15

VICTIM NOTIFICATION 17

FUTURE RESPONSE 20
3

The broad use of DNA technology in forensic 

laboratories, starting in the early 2000s, gave us 

a powerful tool that has not only improved the 

investigation of sexual assault and other serious 

crimes but has also helped solve cold cases, 

identify the missing, and exonerate hundreds of 

innocent people who were convicted of crimes 

they did not commit.

At the same time, concern has been growing about 

the nation’s response to sexual assault. Concerns 

range from the large numbers of sexual assault kits 

in police storage that have never been tested, to the 

high number of assaults that were never reported, to 

the response to sexual assault on campuses.

Advances in science are making it possible for 

forensic labs to identify trace amounts of DNA from 

evidence. Science is also helping us identify more 

effective methods to support victims. Studies in 

neuroscience, for example, are showing how trauma 

may affect a victim’s ability to remember and explain 

details of an assault. Social science research is 

providing evidence-based guidance on collecting 

evidence to improve investigation and prosecution.

The National Institute of Justice (NIJ), the scientific 

research arm of the U.S. Department of Justice, 

supports a range of studies related to sexual assault, 

especially research related to the processing and 

testing of sexual assault kits. NIJ has worked with a 

number of cities — Los Angeles, New Orleans, 

Detroit, Houston, and others — in leading the way 

toward change.

“

ep is knowing what works. Our scientists are building

ased knowledge about how to develop priorities for 

ubmitted sexual assault kits, following up on hits from 

the DNA database, and notifying victims of new developments in 

their cases.

— NANCY RODRIGUEZ, DIRECTOR, NATIONAL INSTITUTE OF JUSTICE

Overview

Advances in the technology for processing and analyzing DNA evidence 

— plus maintenance and expansion of the National DNA database — have 

brought about a profound change to the criminal justice system 
4

SEXUAL ASSAULT KITS

WHAT IS A SEXUAL ASSAULT KIT AND HOW IS IT USED?

A sexual assault kit (SAK) is a collection of evidence gathered from the victim by a medical professional, often 

a specially trained Sexual Assault Nurse Examiner (SANE). The type of evidence collected depends on what 

occurred during the assault. The contents of a kit vary by jurisdiction, but generally include swabs, test tubes, 

microscopic slides, and evidence collection envelopes for hairs and fibers.

The sexual assault kit evidence may contribute to investigations, prosecutions, and 

exonerations in sexual assault cases.

Testing a SAK is one part of the investigative process, but testing does not always result in a new 

investigative lead. For example, the suspect may already be known, or the evidence in the kit does not 

contain any or enough biological evidence to yield a DNA profile.

The medical examination is highly invasive and can last several hours. The victim is swabbed for any 

biological evidence that may contain the perpetrator’s DNA (e.g., skin, saliva, semen). The examiner also 

photographs any bruising or other injuries, collects the victim’s clothing, and provides the victim with 

medicine to prevent infection or pregnancy, if the victim chooses. Evidence collected from the victim goes 

into the sexual assault kit. The SAK and other crime scene evidence, such as bedding, can be tested in an 

effort to identify the perpetrator.

Typically, after the examination is completed, the 

SAK is transferred to an authorized law enforcement agency to be logged into evidence. Protocols vary among jurisdictions regarding whether 

and when the SAK is sent to the lab for testing. 

Identifying reasons why some SAKs, historically, 

were not submitted for testing and researching 

new ways to improve the processing of sexual 

assault kits have been goals of recent NIJ efforts, 

such as the action research projects with Detroit 

and Houston.
5

SEXUAL ASSAULT KITS (Continued)

DEFINITIONS

“Unsubmitted” refers to a sexual assault kit (or other evidence) that is in police custody but has not yet 

been sent or submitted to a crime laboratory for forensic testing.

“Untested” refers to a sexual assault kit (or other evidence) that is at a crime lab but has not yet been 

through forensic testing.

“Backlog” generally refers to evidence that was submitted to a crime lab and that remains untested 

after 30 days.

WHAT IS A SAFE EXAM?

A sexual assault medical forensic exam (SAFE) is conducted by a specially trained Sexual Assault Nurse 

Examiner (SANE) or other medical professional. The exam includes gathering a complete medical history, 

coordinating the treatment of injuries, documenting and collecting biological and physical evidence, and 

referring the victim to other medical or nonmedical support. To provide guidance, the Justice Department 

published A National Protocol for Sexual Assault Medical Forensic Examinations.

The SANE Practitioner Evaluation Toolkit is a step-by-step guide for SANE programs and community 

partners to examine their impact on sexual assault prosecution outcomes in local jurisdictions. This toolkit 

was implemented in six SANE programs and a study of the six programs found that cases processed after 

instituting the SANE program were 80 percent more likely to be successfully prosecuted, compared to 

cases processed before the SANE program was in place. In addition, a 2014 study of SANE programs in 

Massachusetts showed that specially trained nurses were more likely to identify genital injuries, which may 

assist police officers in documenting probable cause.
6

ACTION RESEARCH

TWO CITIES USE A MULTIDISCIPLINARY APPROACH

In 2011, NIJ awarded grants to the Houston, TX, Police Department and the Wayne County (Detroit, MI) 

Prosecutor’s Office to conduct action research projects that would (a) investigate the large numbers of SAKs that 

had not been submitted to a crime laboratory, and (b) use scientific methods to determine how best to proceed.

HOUSTON’S MULTIDISCIPLINARY ACTION RESEARCH PROJECT TEAM, WHICH 

INCLUDED REPRESENTATIVES FROM LAW ENFORCEMENT, MEDICAL, CRIME LAB, 

ADVOCACY, AND LEGAL ORGANIZATIONS.

The two jurisdictions formed 

multidisciplinary teams of researchers 

and practitioners.

The practitioners came from several organizations 

and included police officers, sexual assault forensic examiners, crime lab analysts, prosecutors, and 

victim advocates.

The researchers and practitioners worked 

collaboratively to:

• Determine how many SAKs had not been

submitted for testing.

• Identify underlying factors that caused the

problem.

• Develop a plan for testing unsubmitted SAKs,

including prioritization.

• Create and evaluate a victim notification

protocol.

The projects were undertaken to support the cities 

of Houston and Detroit and to build a knowledge 

base that could help other jurisdictions respond to 

sexual assault crimes.

WHAT IS ACTION RESEARCH?

The Houston and Detroit projects used applied 

research methods to understand circumstances in 

their local context, plan and implement a response, 

and then evaluate and modify the response based 

on evaluation results. One advantage of using an 

action research model is that scientific data can 

inform real-time decision-making during the 

project.

“ Action research builds longterm partnerships among 

agencies and researchers 

and also builds research 

capacities within the agencies 

involved in the projects.

— BILL WELLS, RESEARCH PARTNER, SAM HOUSTON 

STATE UNIVERSITY
7

A TEAM EFFORT

A TEAM EFFORT AND A SYSTEMIC RESPONSE

To better understand how large numbers of unsubmitted kits accumulated, and to prevent the problem from 

recurring, both cities found that regular communication, collaboration, and cooperation among all the 

stakeholders were essential.

The multidisciplinary teams shared in making decisions and recommendations on how to 

handle unsubmitted kits and improve sexual assault responses in current cases.

Practitioners from law enforcement, the district attorney’s office, forensic science, medical and mental health, 

and community support services collaborated to identify workflows, formulate goals, manage logistics, and 

review case details. Each of these disciplines had valuable and varying perspectives, all of which contributed 

to understanding the issue of unsubmitted SAKs in Houston and Detroit.

The teams from Houston and Detroit evaluated their sexual assault responses through open communication 

and a committed partnership, creating a culture of trust and understanding. Developing these relationships 

allowed both communities to gain a deeper understanding of the various perspectives, motivations, and 

responsibilities of each organization represented on each team.
8

A TEAM EFFORT (Continued)

MULTIDISCIPLINARY TEAMS WERE VALUABLE FOR THE DETROIT AND HOUSTON ACTION RESEARCH PROJECTS 

BECAUSE EACH MEMBER BROUGHT UNIQUE EXPERTISE.

“ One of the first things we learned is that this is not something 

just for property rooms and crime labs to deal with. Although 

testing kits is part of the solution, it is only one part. Work load 

then flows downstream — to investigators, prosecutors, and 

victim advocates — which is why it is so important to think 

holistically in terms of a system response.

—BILL WELLS, RESEARCH PARTNER, SAM HOUSTON 

STATE UNIVERSITY
9

DISCOVERING THE ISSUES

DISCOVERING ISSUES, DEVELOPING SOLUTIONS

The first step Houston and Detroit took was to conduct a census of the SAKs in police custody to determine how 

many kits they had, and how many had or had not been tested. Both cities also began by analyzing small groups 

of kits, developing and documenting the process. They identified challenges they would need to resolve, such 

as how much information to gather about each kit, how much time and how many personnel would be needed 

to conduct a full census, and how the chain of custody would be preserved. Other jurisdictions may want to 

consider other census tasks, such as developing a tracking database and making pre-arrangements for the 

laboratory to test a large number of kits.

BOTH HOUSTON AND DETROIT CONDUCTED A CENSUS TO DETERMINE HOW MANY UNSUBMITTED 

SEXUAL ASSAULT KITS THEY HAD.

“ We didn’t want to rush in and take action without understanding 

the nuances of the situation. [We] wanted to understand the 

issues so we could craft responses that stood the best chance 

of succeeding. —BILL WELLS, RESEARCH PARTNER, SAM HOUSTON STATE UNIVERSITY
10

DISCOVERING THE ISSUES (Continued)

Another question Houston and Detroit sought to answer was why kits were not 

submitted to the lab at the time the assault occurred.

Previous research and anecdotal information have revealed a number of reasons that police in the 

past did not send a kit for testing. In many sexual assault cases, for example, the victim knows the 

perpetrator, and the police might not send a kit to the lab because they do not need to confirm the 

identity of the suspect. But, we are learning through research that as the national DNA database 

grows and DNA from cases with known suspects are entered into the national database, 

investigators are more likely to find leads to other crimes, including other sexual assaults.

Reasons why kits were not sent to the lab are likely to vary from one jurisdiction to another.

History Matters

To understand how such large numbers of untested SAKs have accrued, history matters. In 1994, 

Congress authorized the National DNA Index System (NDIS), but modern DNA forensic analysis was 

not widely used until the late 1990s. A database is only as robust as the amount of information in it. It 

took years to build up the number of profiles in the database — for law enforcement to begin to 

routinely submit DNA samples, and for crime labs to complete the extensive processes to qualify and 

upload DNA profiles into the database. In Detroit, for example, the crime lab had provisional ability 

to upload profiles into the database starting in 2002, but did not achieve full capability until 2006. 

Until at least the early 2000s, the use of DNA databases was not common across the nation.
11

DISCOVERING THE ISSUES (Continued)

L

DETROIT IDENTIFIED FIVE REASONS WHY KITS WERE NOT SUBMITTED TO THE LAB.

The Importance of Modern IT

The availability of computerized evidence-tracking systems is a significant issue with many 

jurisdictions in the nation facing severe information technology (IT) challenges. In some places, 

one person in the police department maintains a single spreadsheet for managing and tracking 

evidence in the property room. It isn’t easy to figure out what evidence needs to be tested, let 

alone determine the status of the case. During the action research projects, the teams in Detroit 

and Houston worked with IT experts to develop centralized databases containing information 

about all SAKs in police custody. Having a robust, automated tracking system gives a jurisdiction a 

vastly improved capacity to evaluate the funding, staffing, and other resources they need to 

test kits, do follow-up investigations, and prosecute a suspect.
12

DISCOVERING THE ISSUES (Continued)

DISCOVERING THE ISSUE IN DETROIT

“In August 2009, representatives from the Wayne 

County prosecutor’s office, the Michigan state 

police, were invited to tour a Detroit police 

department property storage facility. That is, an 

abandoned parking structure — or it had been 

until the police appropriated it and used it as an 

overflow storage facility for crime scene evidence 

emanating from Detroit.

So in walking through that parking structure and 

looking at all of the evidence from different crimes 

that had amassed over the years, one of the 

prosecutors described what happened next as 

this. He said, “We’re walking through, and I see 

these like steel shelving units with boxes and I say, 

“What are those?” and they said, “Those are rape 

kits.” And I said, “Rape kits! What are all of those 

rape kits doing here?” I estimated 10,000 or more. 

And I asked, “Are they tested or untested?” and 

the officer said, “I don’t know.”

– Rebecca Campbell, Researcher from

Michigan State University, tells the story of

how Detroit discovered their unsubmitted

sexual assault kits.

DISCOVERING THE ISSUE IN HOUSTON

“Why were sexual assault kits never submitted for 

testing? And what we found is that the decision to 

test the sexual assault kit laid primarily with the 

investigator, and again, that’s up until 2006, the 

investigator made the decision on whether or not 

a kit was tested. But that investigator had some 

other factors to consider when making that decision. They had to look at the case components. 

What were the facts of the case? Was the suspect 

known? Was there a consent issue involved? 

Things of that nature. The technology that was 

available at the time, prior to DNA coming aboard, 

the technology was minimal. We had to have a 

known suspect to make comparisons. When 

DNA did come on board, then we had to look at 

crime lab resources, the staffing, the equipment, 

things of that nature, so that was an issue for the 

investigator to consider as well. And then the cost. 

Once DNA was available, we did not have the 

money to send out kits. So all of those components played a role in determining whether or not 

a kit was submitted for testing and, if it was 

submitted, whether or not it did get tested.”

– Mary Lentschke, Assistant Chief of the Houston Police Department, discusses some of

the historical reasons why sexual assault kits

were not submitted for testing in Houston.
13

DNA TESTING

THE SCIENCE OF KIT TESTING

Forensic testing of potential evidence in a SAK is a complex process that can take several weeks and include 

multiple testing stages. NIJ’s scientific investments over the years have produced significant improvement in the 

technology and methods used to test kits.

Studies are making it possible for labs to reduce the time and cost of testing.

Rather than test each sample one at a time, for example, most labs today can now routinely test 

multiple samples simultaneously and better isolate mixed DNA samples.

When processing evidence, lab practitioners typically consider:

• The police report and the victim’s statement of what happened to help the analysts determine how

best to process the evidence and which pieces of evidence are most likely to contain biological

material (saliva, skin cells, blood, semen).

• The time between the assault, the forensic exam, and when the kit is opened in the lab; biological

evidence can deteriorate over time, and older evidence is processed differently from evidence that

was collected recently.

• The condition of collected biological material (sometimes evidence is so severely degraded that the

lab cannot obtain a DNA profile).

“ A DNA profile by itself is fairly useless because it has no 

context. DNA analysis always requires that a comparison be 

made between two samples. — DETROIT SEXUAL ASSAULT KIT FINAL REPORT
14

DNA TESTING (Continued)

What is CODIS?

The FBI’s Combined DNA Index System, known as CODIS, is the national criminal DNA database. CODIS was 

established by Congress to assist in providing investigative leads for law enforcement. The National DNA 

Index System (NDIS) is one part of CODIS, containing the DNA profiles contributed by federal, state, and local 

participating forensic laboratories. DNA profiles are uploaded to NDIS from evidence collected at crime 

scenes, from convicted offenders and arrestees, as well as from missing persons and unidentified remains.

A “CODIS hit” can occur in two ways. The first is when a DNA profile developed from evidence in an SAK is 

uploaded to CODIS and matches to an offender or arrestee profile in the system. The second way is a 

case-to-case hit in which an unidentified DNA profile matches an unidentified profile from another case. If there 

is a potential match, the laboratory will go through procedures to confirm the match. If the match is confirmed, a 

CODIS hit can give investigating officers valuable information to help them focus their investigation and identify 

potential suspects. The more DNA data is entered into this system, the more likely it will be to produce 

meaningful leads on crimes.

THE VALUE OF FORENSIC RESEARCH & DEVELOPMENT

Research is continually improving DNA analysis 

with new methods and technology. NIJ supports a 

robust DNA research and development portfolio 

that has made advances that can help crime labs 

test SAKs.

One challenge that forensic scientists face when 

testing SAKs is that the evidence often contains a 

very small number of sperm from the perpetrator 

mixed with a large number of epithelial (skin) cells 

from the victim. Separating out the sperm for DNA 

testing is a time-consuming and labor-intensive 

process.

NIJ-supported research is continuing to develop 

more accurate and automated methods of isolating 

male DNA, such as using a nuclease to digest the 

remaining epithelial DNA in the sperm fraction of 

the sample, allowing the forensic scientist to obtain 

a clean single-source male 

DNA profile. This research led to a commercially 

available product for laboratories that can help 

reduce costs and time.

In some cases with multiple perpetrators, or when 

the victim had consensual sex within days or hours 

of the assault, identifying the exact number of 

contributors can be a challenge. NIJ is currently 

supporting research to improve the statistical 

methods that forensic scientists use to determine 

the number of contributors in a sample.

The Impact of Forensic 

Research and Development
15

DETROIT FINDINGS

WHAT DETROIT FOUND

The Detroit team discovered 8,707 untested kits. The city eventually decided to test all of them, and the team 

decided to randomly select a small portion to study in depth to understand what outcomes might occur under 

different circumstances. They hoped to provide data that would help other jurisdictions.

The team randomly selected 1,595 cases 

and sorted them into four categories:

1. Stranger-perpetrated sexual assault: The victim

did not know the identity of the suspect.

2. Non-stranger-perpetrated sexual assault: The

suspect was identified by the victim.

3. Cases that were presumed to be beyond the

statute of limitations.

4. A comparison of traditional and selective

degradation DNA-testing methods.

The results of the experiment showed similar results 

for all four types of cases: similar percentages in the 

number of profiles eligible to be entered into CODIS, 

similar percentages of CODIS hits, and a similar ability 

to help identify instances of serial sexual assaults.

In the past, if the suspect’s identity was known, police 

may not have submitted the kits to the lab for testing. 

In Detroit, however, the study of 1,595 randomly 

selected SAKs revealed that testing kits involving 

known suspects produced CODIS hits showing that 

the suspect committed other offenses, including 

sexual assaults.

Other jurisdictions may find very different results. 

Additional research is underway to learn more about 

serial rapists and the value of testing kits when the 

police have a suspect.

In addition, the Detroit research team conducted a 

randomized experiment on 400 cases to compare 

two DNA-testing methods: the traditional method 

and a new method called selective degradation. In selective degradation, the forensic scientist uses a faster-acting chemical technique for isolating the sperm 

and destroying the remaining non-sperm cells in the 

sample. The technique minimizes mixtures in 

the sample while leaving any sperm mixtures intact 

(if there are multiple male assailants).

The results showed that the selective degradation 

method was as accurate as the traditional method, and 

the rates of profiles eligible for CODIS entry were very 

similar. Selective degradation takes scientists less time 

to interpret and review the test results, so it could be 

a promising method for laboratories to save personnel 

costs without sacrificing testing quality.

shutterstock_32697205 artist: Yaroslava Koziy
16

DETROIT FINDINGS (Continued)

THE DETROIT ACTION RESEARCH PROJECT REVEALED THAT TESTING KITS INVOLVING 

KNOWN SUSPECTS COULD IDENTIFY SERIAL SEXUAL OFFENDERS.

DELIVERING RESULTS TO THE 

COMMUNITY: THE HOUSTON 

PRESS CONFERENCE

Houston officials decided to test all 6,662 

unsubmitted kits. This press conference 

announces these results to the community. 

The Houston action research team is studying a sample of 500 of these kits to examine investigative and judicial outcomes.

A NOTE ABOUT INTERPRETING DATA 

IN DETROIT

The Detroit team did not look at outcomes beyond CODIS 

hits — that is, they did not look at what happened to cases 

after the DNA profiles were entered into the national database (NDIS). They did not analyze how many cases resulted 

in successful arrest and prosecution after the CODIS hit 

occurred, nor did they analyze how many cases had been 

successfully adjudicated without the SAK being tested.

Although we know that DNA testing of evidence may offer 

important investigative leads, it does not automatically 

bring a perpetrator to justice. Additional investigation must 

be conducted, charges must be filed, and cases must be 

successfully prosecuted. Therefore, determining the actual 

judicial outcomes post-DNA testing is worthy of further 

scientific inquiry.
17

VICTIM NOTIFICATION

VICTIM-CENTERED AND TRAUMA-INFORMED

When a sexual assault occurred a long time ago, and the victim has not heard anything since agreeing to the 

exam, notifying them about new information is complicated. Victims, for example, may no longer want to take 

part in an investigation or may fear being retraumatized.

A goal of the action research projects in Detroit and Houston was to develop victim 

notification protocols that were victim-centered and trauma-informed.

Both Detroit and Houston saw the need to train their criminal justice professionals on the victims’ 

neurobiological response to sexual assault. For example, victims of trauma may behave in ways that are 

confusing to themselves and others, or may find that their recollection of events comes slowly and in 

fragments. Research has shown that the quality of statements can be enhanced by allowing victims to tell 

their stories at their own pace, understanding that their account may not come out in chronological order, 

and that details may be fuzzy.

The teams in both Detroit and Houston developed and implemented victim notification protocols for cases 

where a SAK was previously untested. In Detroit, the team established in-person notification and offered an 

apology when testing of a SAK yielded a CODIS hit. The in-person notification was done by representatives 

from the prosecutor’s office, not the police department. Victims were also offered options for confidential 

communication (including whether or when to follow up with investigators or a community advocate) and 

were connected with community services.

One of the victim notification protocols in Houston included creation of a hotline for victims of sexual 

assault to contact authorities to learn the status of their cases, including results of the DNA testing. The 

hotline was advertised through public service announcements online and in pamphlets left at community 

centers.

The Houston Police Department also hired a specialist, called a “justice advocate,” to help sexual assault 

victims navigate the criminal justice system. To better understand the impact the justice advocate position 

had on sexual assault investigations, the Houston action research team held focus-group sessions with 

detectives. The response was so positive that when results were presented to leadership, the position was 

made permanent.

As the nation grapples with how to better respond to sexual assault, using victim-centered and 

trauma-informed policies and practices is critical. Such approaches can provide victims access to the 

justice system, enhance victim services and responses, and improve public safety.

istock_42236308 artist: lathuric
18

VICTIM NOTIFICATION (Continued)

What happens to the brain and body during a sexual assault?

Sexual trauma directly affects parts of the brain that control memory, cognition, and emotion processing. 

Because the brain detects a threat, it activates a flood of hormones. The brain is highly sensitive to these 

severe fluctuations, and the hormones can:

• Impair rational thought and memory consolidation.

• Reduce energy and cause “tonic immobility,” or temporary muscular paralysis.

Victims may experience “flat affect,” show little emotion, or have emotional responses that seem unusual 

given the circumstances, such as laughing or smiling while being questioned, often leading investigators 

to not believe them. Their memories of the trauma may also be fragmented and disoriented, so recalling 

events can be a slow and difficult process, and their statement may come out as evasive or “sketchy.” In 

addition, because of the lack of knowledge about what tonic immobility is, victims may feel increased selfblame, and police investigators may misinterpret this as consent.

Having a basic understanding that there is a wide range of reactions to a traumatic event that may not 

seem “typical” — and that the body’s attempt to defend itself from a threat can affect these reactions — is 

important for every criminal justice professional to understand. Teaching law enforcement officials that it 

may take more time and patience for a victim’s memory to come together — and that a victim’s reaction to 

fight, flee, or freeze is uncontrollable behavior — may help investigators and prosecutors down the road.
19

VICTIM NOTIFICATION (Continued)

DEFINITIONS

“Victim-centered” means that the victim is at the center of all decisions regarding recovery and any 

involvement with the criminal justice system. The victim’s choice, safety, and wellbeing is the focus, and the needs of the victim are a concern for everyone — not just 

the victim advocates.

“Trauma-informed” means attending to the victim’s emotional and physical safety; using resources, 

services, and support to increase the victim’s capacity to recover; and educating 

victims, service providers, first responders, and the general community about the 

psychological impact of trauma on the health and well-being of the victim.

HOW HOUSTON PUT VICTIMS AT THE 

CENTER OF THE RESEARCH

“What we knew in Houston is we wanted to be able to 

put victims at the center of our research. So we were 

going to ask three questions around victim notification 

specifically:

1. When and how victims wanted to be notified once

we started testing their kits?

2. What did advocates have to say about

notification processes?

3. And what could our interdisciplinary team add to

that effort?

What we found, with regards to notification, was that 

when we interviewed victims who had untested kits, is 

that they wanted choice and control. They thought notification should be flexible. They thought they had the right 

to know. It was across the board, some people said they 

wanted to know, some people said they didn’t want to 

know, so it should be a thoughtful 

notification.”

– Noël Busch-Armendariz, Researcher from

The University of Texas at Austin, discusses what

the Houston team considered when creating a

victim centered notification protocol.

WHAT IS A JUSTICE ADVOCATE?

Hired as a member of the police department’s staff, the justice advocate is a 

trained social worker who has the unique 

skills to connect with victims, address their 

needs, guide them through the criminal 

justice system, and keep them engaged 

throughout the process. Like a Sexual 

Assault Nurse Examiner, justice advocates recognize victims’ experiences and 

perspectives and collaborate with investigators to ensure that victims receive the 

level and types of services they need.
20

FUTURE RESPONSE

FUTURE RESPONSES TO SEXUAL ASSAULT

Science is helping our nation move forward in developing better responses to sexual assault — better 

interviewing of victims, better tracking of evidence, better investigation and prosecution, and better ways 

to support victims.

“ This is not a Houston problem. It’s not a Texas problem. It’s a 

nationwide issue that built up over years and years.

– ANISE PARKER, MAYOR OF HOUSTON

Although the research projects in Detroit 

and Houston produced policies and 

practices that are unique to the 

circumstances in those communities, 

lessons learned from their experiences 

may apply elsewhere.

Other jurisdictions that are facing similar issues with 

a large number of previously untested SAKs may 

want to consider the following:

• How do law enforcement, prosecutors, victims’

services, medical professionals, and forensic

laboratories work together to address the

testing of large numbers of SAKs?

• What should be considered when developing

a database for tracking evidence that goes to

the lab for testing?

• Who should be trained to understand the

trauma of sexual assault and how to work

with victims?

• Is there a written, victim-centered and

trauma-informed victim notification protocol

for both current sexual assault cases and

cases where the SAK was not previously

tested?

• How can police work with victim advocates

and community services to improve the

investigation and notification process?

• How should priorities be established for the

order in which SAKs are tested?

• What are the cost implications for testing

large numbers of unsubmitted SAKs and

any follow-up police investigations and

prosecutions?

• What new technologies can be adopted to

increase the capabilities of the forensic lab?

Although Detroit and Houston decided to test all 

previously unsubmitted SAKs, the decisions other 

jurisdictions make are likely to be bound by their 

own unique challenges and realities. However, 

the decision to test a SAK is just one factor in 

solving a sexual assault case. To investigate and 

prosecute these cases requires improvements in 

protocols that are integrated, systemwide, and 

evidence-based. The overarching goal of NIJ’s 

research and development projects is to find 

data-driven methods to improve the way practitioners ensure justice while supporting those who 

have experienced the trauma of victimization. Each 

community is unique. There is no one way to tackle 

this problem, but NIJ’s body of research regarding 

sexual assault shows that when criminal justice 

stakeholders pool their resources and expertise, 

they are more successful at creating change.

On the road ahead, how can your community work 

as a team to respond to sexual assault victimization 

and support the victims in seeking justice?
21

FUTURE RESPONSE (Continued)

Resources

• Five Things About Sexual Assault Kits, a fact

sheet about DNA testing of sexual assault kits.

• “Taking on the Challenge of Unsubmitted Sexual

Assault Kits,” webinar with Rebecca Campbell,

Noël Busch-Armendariz, Bill Wells, and Mary

Lentschke. Moderated by Bethany Backes.

• The Road Ahead: Unanalyzed Evidence in

Sexual Assault Cases , Special Report by Nancy

Ritter, U.S. Department of Justice, National Institute of Justice, 2011.

• Sexual Assault Kits, video interviews with

Rebecca Campbell, Noël Busch-Armendariz, Bill

Wells, and Caitlin Sulley.

• “Lessons Learned from the Detroit Sexual

Assault Kit Action Research Project,” a series of

guides from The Detroit Sexual Avvvssault Kit

(SAK) Action Research Project, Final Report, by

Rebecca Campbell et al.

* Conducting an Action Research Project

* Conducting a SAK Census

* Developing a SAK Testing Plan

* Conducting Victim Notifications 

• Houston Sexual Assault Kit Research, a website

devoted to the Houston multidisciplinary team’s

approaches, processes, and research findings.

• Untested Evidence in Sexual Assault Cases, a

webpage that discusses the findings of NIJsupported research on sexual assault evidence.

• The NIJ-FBI Sexual Assault Kit Partnership

— A Research Initiative for Unsubmitted Sexual

Assault Kits, a webpage that provides

information from the NIJ & FBI partnership

to address unsubmitted sexual assault kits.

• A National Protocol for Sexual Assault Medical

Forensics Examinations: Adults/Adolescents

(Second Edition), U.S. Department of Justice,

Office on Violence Against Women.

FEDERAL FUNDING OPPORTUNITIES

• Office of Justice Programs (U.S. Department

of Justice) funding opportunities.

• DNA Backlog Reduction Program, National

Institute of Justice (U.S. Department of

Justice) DNA Backlog Reduction Program

funding opportunities.

• National Institute of Justice (U.S. Department

of Justice) funding opportunities.

• Office on Violence Against Women (U.S.

Department of Justice) grant programs.

• U.S. Government funding opportunities

at Grants.gov.
22

NIJ Sexual Assault Kit Web Poster Photo Credit Information

Header: (illustration) 

http://www.gettyimages.com/detail/illustration/network-conceptual-illustration-royalty-free-illustration 

/545863031 Credit: KTSDESIGN/SCIENCE PHOTO LIBRARY

Background image: (pipette) shutterstock_43305892 artist: fotohunter 

http://www.shutterstock.com/pic-43305892/stock-photo-scientific-or-medical-experiment-drip-tube-in-front-agenic-graph.html?irgwc=1&tpl=77643-108110 

Sexual Assault Kits

Images Produced by HTV Television

Action research

Houston team photo: photographer unknown, used with permission from the Houston Sexual Assault 

Kit Action Research Team

A Team Effort

Images Produced by HTV Television

DNA Testing

Images Produced by HTV Television

Detroit Findings

SAK shelf photo: shutterstock_32697205 artist: Yaroslava Koziy

Victim Notification

Victim: istock_42236308 artist: lathuric

Other Sources:

Additional video footage provided by HTV Television. 

Audio files provided by Harvard Kennedy School, Ash Center.