I 

118TH CONGRESS 

2D SESSION H. R. 8183 

To direct the Attorney General to convene a national working group to 

study proactive strategies and needed resources for the identification 

and rescue of children from sexual exploitation and abuse, and for 

other purposes. 

IN THE HOUSE OF REPRESENTATIVES 

APRIL 30, 2024 

Ms. SPANBERGER (for herself, Mr. FITZPATRICK, and Mr. OWENS) introduced 

the following bill; which was referred to the Committee on the Judiciary 

A BILL 

To direct the Attorney General to convene a national working 

group to study proactive strategies and needed resources 

for the identification and rescue of children from sexual 

exploitation and abuse, and for other purposes. 

1 Be it enacted by the Senate and House of Representa2 tives of the United States of America in Congress assembled, 

3 SECTION 1. SHORT TITLE. 

4 This Act may be cited as the ‘‘Child Rescue Act’’. 

5 SEC. 2. FINDINGS. 

6 Congress finds the following: 

7 (1) The growing international trade in child 

8 sexual abuse material creates demand and incentive 


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1 for the sexual assault of children throughout the 

2 United States. 

3 (2) United States law enforcement efforts to 

4 combat child sexual exploitation have the potential 

5 to help multiple distinct groups of victims, includ6 ing— 

7 (A) children depicted in child sexual abuse 

8 material (CSAM) who are still being abused; 

9 (B) children and adults whose victimiza10 tion as a child continues to be viewed and 

11 shared online; and 

12 (C) children who are being sexually abused 

13 or exploited by adults who could be interdicted 

14 while accessing or sharing CSAM online. 

15 (3) In 2021, law enforcement investigative sys16 tems detected more than 325,000 unique Internet 

17 Protocol addresses in the United States seen distrib18 uting child sexual abuse material across peer-to-peer 

19 file sharing networks. 

20 (4) A growing body of research, including aca21 demic studies, analysis by the United States Sen22 tencing Commission, and findings by law enforce23 ment polygraphers, indicates that a significant per24 centage of majority of individuals possessing and 

25 sharing CSAM are ‘‘dual offenders’’ who possess ilVerDate Sep 11 2014 01:42 May 25, 2024 Jkt 049200 PO 00000 Frm 00002 Fmt 6652 Sfmt 6201 E:\BILLS\H8183.IH H8183

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1 legal imagery and also commit contact offenses. In 

2 2021, the United States Sentencing Commission 

3 found that in fiscal year 2019, 48 percent of ‘‘non4 production child pornography offenders engaged in 

5 aggravating sexual conduct prior to, or concurrently 

6 with’’, their current offense. Studies including Seto 

7 et al, the Butner Redux, the OJJDP study, and 

8 Bourke et al Tactical Polygraph study have found 

9 that between 50 and 80 percent of offenders who 

10 possess CSAM are also committing contact sexual 

11 offenses against children. 

12 (5) According to a 2018 study by the National 

13 Center for Missing and Exploited Children 

14 (NCMEC), ‘‘in cases involving a single victim and 

15 single offender, actively traded cases were associated 

16 with having prepubescent victims. Actively traded 

17 cases were also associated with more egregious con18 tent in terms of sexual activity, and more likely to 

19 involve familial offenders, particularly nuclear family 

20 members’’. 

21 (6) CyberTipline reports often lead to the res22 cue of children through the successful investigation 

23 of offenders who are not only exploiting children by 

24 circulating CSAM, but who are also committing con25 tact offenses. In 2020, 21,700,000 CyberTipline reVerDate Sep 11 2014 01:42 May 25, 2024 Jkt 049200 PO 00000 Frm 00003 Fmt 6652 Sfmt 6201 E:\BILLS\H8183.IH H8183

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1 ports were submitted to NCMEC and approximately 

2 288,000 CyberTipline reports were made available to 

3 the 61 Internet Crimes Against Children (ICAC) 

4 units across the country. 

5 (7) United States law enforcement’s ability to 

6 detect and interdict online traffic in CSAM provides 

7 an opportunity to locate sexual predators and rescue 

8 children through victim-centric investigations. 

9 (8) With inadequate resources, United States 

10 law enforcement agencies are increasingly unable to 

11 adequately respond to this rapidly growing number 

12 of CyberTips and other investigative leads, a prob13 lem which also reduces the number of proactive un14 dercover investigations and education activities they 

15 can conduct. 

16 (9) Investigations of these crimes are com17 plicated by the increasing prevalence of encryption 

18 and anonymizing services available to offenders. 

19 SEC. 3. UNITED STATES WORKING GROUP ON CHILDREN IN 

20 IMMINENT DANGER OF SEXUAL ABUSE AND 

21 EXPLOITATION. 

22 (a) ESTABLISHMENT.—Not later than 90 days after 

23 the date of the enactment of this Act, the Attorney Gen24 eral shall establish a national working group, to be known 

25 as the ‘‘United States Working Group on Children in ImVerDate Sep 11 2014 01:42 May 25, 2024 Jkt 049200 PO 00000 Frm 00004 Fmt 6652 Sfmt 6201 E:\BILLS\H8183.IH H8183

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1 minent Danger of Sexual Abuse and Exploitation’’ (here2 inafter referred to as the ‘‘Working Group’’), to study vic3 tim-centric policing strategies and resource needs to iden4 tify and rescue— 

5 (1) children in the United States who are vis6 ually depicted in child sexual abuse material; 

7 (2) children in the United States who are vic8 tims of sexual abuse by individuals who are engaged 

9 in an offense relating to child sexual abuse mate10 rials; and 

11 (3) children located outside the United States 

12 who are visually depicted in child sexual abuse ma13 terials where the perpetrators are in the United 

14 States. 

15 (b) DUTIES OF THE WORKING GROUP.— 

16 (1) INFORMATION REQUEST.—Not later than 

17 30 days after the establishment of the Working 

18 Group under subsection (a), the Working Group 

19 shall solicit from each State, Tribal, or local law en20 forcement agency the information necessary to de21 velop the estimates under paragraph (2). 

22 (2) DEVELOPMENT OF ESTIMATES.—The Work23 ing Group shall: 

24 (A) Develop estimates of the total number 

25 of individuals suspected with respect to child 


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1 sexual abuse material or other crimes involving 

2 sexual contact with children in the United 

3 States, including those who are— 

4 (i) known to a law enforcement agen5 cy; 

6 (ii) identified by law enforcement 

7 through proactive policing; or 

8 (iii) reported to the CyberTipline of 

9 NCMEC (or any successor to the 

10 CyberTipline operated by NCMEC). 

11 (B) Develop estimates of the total number 

12 of child victims of child sexual abuse in the 

13 United States who could be located and pro14 tected from further abuse through the appre15 hension of suspects described under subpara16 graph (A). 

17 (C) Develop recommendations of the fund18 ing, resources, and proactive and reactive strat19 egies necessary for law enforcement agencies to 

20 successfully identify, locate, and protect child 

21 victims— 

22 (i) described in subparagraph (B); 

23 and 


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1 (ii) who appear in child sexual abuse 

2 material known to a law enforcement agen3 cy or NCMEC. 

4 (D) Develop or obtain estimates of the 

5 number of child sexual abuse reports made an6 nually to law enforcement agencies and to 

7 State, Tribal, and local child protective services, 

8 broken out by locality and relationship between 

9 victim and offender, including adults in a posi10 tion of trust or authority. 

11 (E) Develop recommendations for strate12 gies, best practices, and resources that could be 

13 used by law enforcement agencies to determine 

14 whether offenders alleged to have committed a 

15 crime involving sexual contact should also be in16 vestigated for potential child sexual abuse mate17 rial crimes. 

18 (F) Develop recommendations of victim19 centric and proactive policing strategies, inter20 national collaboration, and resource needs to 

21 apprehend offenders in the United States who 

22 are engaged in offenses related to children as 

23 described in subsection (a)(3). 

24 (G) Develop estimates of, or compile data 

25 solicited under paragraph (1)— 


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1 (i) the number of adults who were ar2 rested by law enforcement agencies during 

3 the 5-year period preceding the date of en4 actment of this Act, by year, for offenses 

5 or violations described in subparagraphs 

6 (A) through (D); 

7 (ii) the number of adults who were 

8 prosecuted at the State, Tribal, or Federal 

9 level during the 5-year period preceding 

10 the date of the enactment of the Act, by 

11 year, for offenses described in subpara12 graphs (A) through (D); and 

13 (iii) the number of children who are 

14 unidentified victims of child sexual abuse 

15 material described in subparagraph (C)(ii). 

16 (H) Analyze and summarize common rea17 sons why investigations of reports of child sex18 ual abuse or exploitation do not go forward. 

19 (I) Develop guidance for Internet Crimes 

20 Against Children Task Forces to adopt a 

21 prioritization framework with respect to the in22 vestigation and prosecution of all child sexual 

23 abuse and exploitation, including prioritizing in24 vestigating individuals using encryption or 

25 anonymization. 


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1 (J) Develop guidance on the Attorney Gen2 eral’s response to technology companies that 

3 refuse to comply with lawful requests for infor4 mation related to offenders who use virtual pri5 vate networks. 

6 (K) Evaluate the current duties and re7 sponsibilities of ICAC Task Forces pursuant to 

8 section 21114 of title 34, United States Code, 

9 including on— 

10 (i) workloads; and 

11 (ii) their ability to pursue investiga12 tions which are most likely to result in the 

13 identification of offenders described in sub14 paragraph (A) and children described in 

15 subparagraph (B). 

16 (3) REPORT.— 

17 (A) IN GENERAL.—Not later than 365 

18 days after the date of enactment of this Act, 

19 the Working Group shall submit to the Attor20 ney General, the Committee on the Judiciary of 

21 the Senate, the Committee on Appropriations of 

22 the Senate, the Committee on the Judiciary of 

23 the House of Representatives, and the Com24 mittee on Appropriations of the House of Rep25 resentatives, a report that contains— 


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1 (i) a detailed statement of the find2 ings and conclusions of the Working 

3 Group, together with recommendations for 

4 legislation; and 

5 (ii) a summary of the support, docu6 ments, and witnesses provided by the At7 torney General to the Working Group. 

8 (B) MATERIAL INCLUDED.—A majority 

9 vote of the members of the Working Group 

10 shall determine the findings, conclusions, and 

11 recommendations included in the report sub12 mitted under subparagraph (A). 

13 (C) DOCUMENTATION OF NUMERICAL

14 EDITS.—If for any reason the Working Group 

15 is unable to develop the estimates under para16 graph (2), the Working Group shall in the re17 port under this paragraph document the rea18 sons such estimates could not be developed and 

19 make recommendations toward developing such 

20 estimates. 

21 (c) MEMBERS OF THE WORKING GROUP.— 

22 (1) IN GENERAL.— 

23 (A) ATTORNEY GENERAL DISCRETION.— 

24 The Working Group shall be composed of rep25 resentatives of Federal departments and agenVerDate Sep 11 2014 01:42 May 25, 2024 Jkt 049200 PO 00000 Frm 00010 Fmt 6652 Sfmt 6201 E:\BILLS\H8183.IH H8183

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1 cies, law enforcement agencies, Tribal govern2 mental agencies, nongovernmental organiza3 tions, and other subject matter experts as the 

4 Attorney General determines appropriate. 

5 (B) SPECIFIED MEMBERS.—The Attorney 

6 General shall appoint representatives of the fol7 lowing agencies and nongovernmental organiza8 tions to the Working Group: 

9 (i) Three representatives from State 

10 or unit of local government who have re11 ceived a grant from the Internet Crimes 

12 Against Children Task Force program with 

13 extensive, direct experience conducting 

14 both CyberTipline investigations and 

15 proactive, online undercover investigations, 

16 including the use of specialized tools for 

17 peer-to-peer investigations. 

18 (ii) The Chief or Deputy Chief of the 

19 Child Exploitation and Obscenity Section 

20 of the Criminal Division of the Department 

21 of Justice. 

22 (iii) The National Coordinator for 

23 Child Exploitation Prevention and Inter24 diction of the Department of Justice. 


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1 (iv) A representative of the Behavioral 

2 Analysis Unit of the United States Mar3 shals Service with subject matter expertise 

4 in child exploitation offenders who also 

5 commit contact offenses. 

6 (v) A special agent of Homeland Se7 curity Investigations with expertise in both 

8 CyberTipline investigations and proactive 

9 online investigations. 

10 (vi) A subject matter expert within 

11 Homeland Security Investigations with ex12 pertise in child victim identification. 

13 (vii) A special agent of the Federal 

14 Bureau of Investigation with expertise in 

15 both CyberTipline investigations and 

16 proactive online investigations and the use 

17 of polygraphs in child sexual abuse mate18 rial investigations. 

19 (viii) A representative from the Na20 tional Children’s Alliance with expertise in 

21 child exploitation and child victim forensic 

22 interviewing. 

23 (ix) A special agent of the United 

24 States Secret Service with expertise in in25 vestigations of child sexual abuse material 


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1 or polygraphs of child sexual exploitation 

2 suspects. 

3 (x) A Postal Inspector at the United 

4 States Postal Inspection Service with ex5 pertise in child sexual abuse material in6 vestigations. 

7 (xi) A representative from the Na8 tional District Attorney’s Association. 

9 (xii) A representative from the aca10 demic community with expertise in devel11 oping technology that can proactively de12 tect the distribution of child sexual abuse 

13 material online. 

14 (xiii) A representative of the Office of 

15 Juvenile Justice and Delinquency Preven16 tion with expertise in available data 

17 sources and methods for developing preva18 lence estimates using direct and indirect 

19 methods of estimation. 

20 (xiv) A representative of the Executive 

21 Office of the United States Attorney. 

22 (xv) A recently retired Internet 

23 Crimes Against Children Task Force Com24 mander. 


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1 (xvi) A representative from National 

2 Child Protection Task Force. 

3 (xvii) Representatives from the De4 partment of Justice Office of Tribal Jus5 tice and the Bureau of Indian Affairs Of6 fice of Justice Services. 

7 (xviii) A representative of the Rape, 

8 Abuse & Incest National Network with 

9 subject matter expertise on child sexual ex10 ploitation and abuse. 

11 (xix) A representative of the Inter12 national Justice Mission with subject mat13 ter expertise on cross-border, live-streamed 

14 child sexual abuse. 

15 (C) TECHNICAL ASSISTANCE.—The Work16 ing Group shall establish a Technical Assistance 

17 Board to provide guidance and technical assist18 ance to the Working Group, composed of the 

19 following: 

20 (i) A representative from the ICAC 

21 Child Online Protection System 

22 (ICACCOPS) at the National Criminal 

23 Justice Training Center with subject mat24 ter expertise on child sexual exploitation 

25 and abuse investigations. 


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1 (ii) A representative from the Child 

2 Rescue Coalition with subject matter ex3 pertise on the Child Protection System and 

4 other child sexual exploitation and abuse 

5 investigations. 

6 (iii) A representative from the Na7 tional Center for Missing and Exploited 

8 Children with subject matter expertise on 

9 child sexual exploitation and abuse and 

10 child victim identification. 

11 The Working Group shall consult with the 

12 members of the Technical Assistance Board 

13 throughout the execution of its duties under 

14 subsection (b). Representatives of the Technical 

15 Assistance Board under paragraph (1) from 

16 each organization shall have the right to be 

17 present at each Working Group meeting. 

18 (2) CESSATION OF MEMBERSHIP.—If an indi19 vidual is appointed to the Working Group based on 

20 membership in an agency or organization and the in21 dividual ceases to be a member of that agency or or22 ganization, the individual shall cease to be a member 

23 of the Working Group on the date on which the 

24 member ceases to be a member of the agency or or25 ganization. 


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1 (3) TERMS.—A member of the Working Group 

2 shall be appointed for the life of the Working Group. 

3 (4) VACANCIES.— 

4 (A) VACANCY BEFORE EXPIRATION OF

5 TERM.—A member appointed to the Working 

6 Group to fill a vacancy occurring before the ex7 piration of the term for which the member’s 

8 predecessor was appointed shall be appointed 

9 only for the remainder of that term. 

10 (B) MANNER OF APPOINTMENT.—A va11 cancy in the Working Group shall be filled in 

12 the manner in which the original appointment 

13 was made. 

14 (5) COMPENSATION.—A member of the Work15 ing Group shall serve without pay. 

16 (6) QUORUM.—A majority of the members of 

17 the Working Group shall constitute a quorum, but 

18 a lesser number may hold hearings. 

19 (7) CHAIRPERSON.—The Chairperson of the 

20 Working Group shall be appointed by the Attorney 

21 General from the membership of the Working 

22 Group. 

23 (8) MEETINGS.—The Working Group shall hold 

24 virtual meetings monthly, and any subgroup of the 


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1 Working Group shall hold additional meetings as 

2 necessary. 

3 (d) STAFF OF WORKING GROUP; EXPERTS AND CON4 SULTANTS.— 

5 (1) STAFF.—The Chairperson of the Working 

6 Group may appoint and fix the pay of additional 

7 personnel as the Chairperson considers appropriate. 

8 (2) EXPERTS AND CONSULTANTS.—The Chair9 person of the Working Group may procure tem10 porary and intermittent services under section 

11 3109(b) of title 5, United States Code. 

12 (3) DETAILEES.—Upon request of the Chair13 person of the Working Group, the head of any Fed14 eral department or agency may detail, on a reim15 bursable basis, any of the personnel of that depart16 ment or agency to the Working Group to assist in 

17 carrying out the duties of the Working Group under 

18 this Act. 

19 (e) POWERS OF THE WORKING GROUP.— 

20 (1) SUBPOENA POWER.— 

21 (A) BY WORKING GROUP.—The Working 

22 may subpoena witnesses and records related to 

23 the purposes of this Act. 

24 (B) ENFORCEMENT.—The district courts 

25 of the United States have jurisdiction to enforce 


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1 a subpoena issued under this section. Trial is in 

2 the district in which the proceeding is con3 ducted. The court may punish a refusal to obey 

4 a subpoena as a contempt of court. 

5 (2) HEARINGS AND SESSIONS.— 

6 (A) IN GENERAL.—The Working Group 

7 may, for the purpose of carrying out this Act, 

8 hold hearings, sit and act at times and places, 

9 take testimony, and receive evidence as the 

10 Working Group considers appropriate. 

11 (B) WITNESSES.—The Working Group 

12 may administer oaths or affirmations to wit13 nesses appearing before the Working Group. 

14 (3) POWERS OF MEMBERS AND AGENTS.—Any 

15 member or agent of the Working Group may, if au16 thorized by the Chairperson, take any action that 

17 the Working Group is authorized to take under this 

18 Section, including requesting information. 

19 (4) OBTAINING OFFICIAL INFORMATION.— 

20 (A) UNITED STATES AGENCIES AND DE21 PARTMENTS.— 

22 (i) IN GENERAL.—The Working 

23 Group may secure directly from any de24 partment or agency of the United States 


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1 information necessary to enable the Work2 ing Group to carry out this Act. 

3 (ii) FURNISHING INFORMATION.— 

4 Upon request of the Chairperson of the 

5 Working Group for information solicited 

6 pursuant to subsection (b), the head of the 

7 department or agency of the United States 

8 shall furnish that information to the Work9 ing Group. 

10 (B) STATE AND LOCAL INFORMATION.— 

11 (i) IN GENERAL.—The Working 

12 Group may obtain and review information 

13 and data from State and local departments 

14 and agencies for purposes of carrying out 

15 this Act. 

16 (ii) COSTS.—The Working Group 

17 shall pay reasonable costs to state and 

18 local agencies for records obtained pursu19 ant to subsection (b). 

20 (5) CLEARANCE FOR MEMBERS OF WORKING

21 GROUP.—In the case that the Working Group inter22 acts with controlled unclassified information, the 

23 Working Group shall follow all laws, regulations, and 

24 government-wide policies with respect to such infor25 mation. 


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1 (f) TERMINATION OF WORKING GROUP.— 

2 (1) IN GENERAL.—The Working Group shall 

3 terminate 120 days after submission of the report 

4 under section 9, unless the Attorney General deter5 mines that such termination is not appropriate. 

6 (2) RECONVENING GROUP.—If the Working 

7 Group terminates under subsection (a), the Attorney 

8 General may reconvene the Working Group in ac9 cordance with this Act. If the Attorney General re10 convenes the Working Group, the Working Group 

11 shall be convened in accordance with this section. 

12 The Attorney General may re-appoint members to 

13 the Working Group who served a previous term if 

14 the Working Group is reconvened. 

15 (g) DEFINITIONS.—In this section: 

16 (1) CHILD.—The term ‘‘child’’ means any indi17 vidual under the age of eighteen years. 

18 (2) CHILD SEXUAL ABUSE MATERIAL.—The 

19 term ‘‘child sexual abuse material’’ shall have the 

20 meaning given the term ‘‘child pornography’’ in sec21 tion 2256 of title 18, United States Code. 

22 (3) CRIME INVOLVING SEXUAL CONTACT.—The 

23 term ‘‘crime involving sexual contact’’ means— 

24 (A) an offense involving a child under 

25 chapter 109A of title 18, United States Code, 


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1 or any attempt or conspiracy to commit such an 

2 offense; or 

3 (B) an offense involving a child under a 

4 State or Tribal statute that is similar to a pro5 vision described in subparagraph (A). 

6 (4) KNOWN TO LAW ENFORCEMENT.—The term 

7 ‘‘known to law enforcement’’ means that a Federal, 

8 State, Tribal, or local law enforcement agency has 

9 evidence of a crime that can be attributed to a per10 son or location, including an email address, Internet 

11 Protocol address, screen name, universally unique 

12 identifier, phone number, or other information at13 tributable to that person or location. 

14 (5) LAW ENFORCEMENT AGENCY.—The term 

15 ‘‘law enforcement agency’’ means an agency of the 

16 Federal Government, a State, a political subdivision 

17 of a State, or a federally recognized tribe that is au18 thorized by law to supervise the prevention, detec19 tion, investigation, or prosecution of any violation of 

20 criminal law. 

21 (6) NCMEC.—The term ‘‘NCMEC’’ means the 

22 National Center for Missing & Exploited Children. 

23 (7) PROACTIVE POLICING.—The term 

24 ‘‘proactive policing’’ means a covert or undercover 

25 investigation conducted by a law enforcement agency 


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1 that involves a person or organization that the law 

2 enforcement agency believes is engaging or has en3 gaged in an offense or violation relating to child sex4 ual abuse, child sexual abuse material, child exploi5 tation, or child sex trafficking crimes. 

6 (8) STATE.—The term ‘‘State’’ means each of 

7 the several States, the District of Columbia, the 

8 Commonwealth of Puerto Rico, or any other terri9 tory or possession of the United States. 

10 (9) VICTIM-CENTRIC.—The term ‘‘victim-cen11 tric’’ refers to the systematic focus on the needs and 

12 concerns of a victim to ensure that services are de13 livered in a compassionate, sensitive, non14 judgmental, and culturally considerate manner that 

15 seeks to minimize retraumatization associated with 

16 the criminal justice process by providing the support 

17 of victim advocates and service providers, empow18 ering victims as engaged participants in the process, 

19 and providing victims an opportunity to play a role 

20 in seeing their abusers brought to justice. 

21 (10) UNITED STATES.—The term ‘‘United 

22 States’’ means the 50 States of the United States of 

23 America and the District of Columbia, the Common24 wealth of Puerto Rico, Guam, the Virgin Islands, 

25 American Samoa, Wake Island, Midway Islands, 


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1 Kingman Reef, Johnston Atoll, the Northern Mar2 iana Islands, and any other trust territory or posses3 sion of the United States. 

Æ 


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