IB 
Union Calendar No. 402 
119TH CONGRESS 
2D SESSION 
H. R. 2853 
[Report No. 119–471] 
To combat organized crime involving the illegal acquisition of retail goods 
and cargo for the purpose of selling those illegally obtained goods through 
physical and online retail marketplaces. 
IN THE HOUSE OF REPRESENTATIVES 
APRIL 10, 2025 
Mr. JOYCE of Ohio (for himself, Ms. LEE of Nevada, Mr. VALADAO, Ms. 
TITUS, Mr. BAUMGARTNER, Mr. SCHNEIDER, Ms. LEE of Florida, Mr. 
CORREA, Mr. KNOTT, Mr. NEGUSE, Mr. LALOTA, Mr. MORELLE, Mr. 
AMODEI of Nevada, Mr. CARBAJAL, Mr. CISCOMANI, Mr. CUELLAR, Mr. 
NEHLS, Mr. COSTA, Ms. MALLIOTAKIS, and Mr. PANETTA) introduced 
the following bill; which was referred to the Committee on the Judiciary 
JANUARY 30, 2026 
Additional sponsors: Mr. WIED, Mr. WOMACK, Mr. MAGAZINER, Ms. 
DELBENE, Mr. EDWARDS, Mr. CARTER of Georgia, Ms. STRICKLAND, 
Mr. MOORE of Alabama, Mr. BEAN of Florida, Mr. ALLEN, Mr. MOORE 
of North Carolina, Ms. HOULAHAN, Mr. CAREY, Mr. GOODEN, Mrs. MIL-
LER of West Virginia, Mr. PETERS, Mr. STAUBER, Ms. TENNEY, Mr. 
WEBSTER of Florida, Mr. DESJARLAIS, Mr. JOHNSON of South Dakota, 
Mr. FONG, Mr. HARRIGAN, Mr. BUCHANAN, Mr. HURD of Colorado, Mr. 
STRONG, Mr. SCHMIDT, Mr. YAKYM, Mr. GARCIA of California, Mr. 
MEUSER, Mr. RULLI, Mr. MOOLENAAR, Ms. BYNUM, Mr. HARDER of 
California, Mr. COHEN, Ms. GILLEN, Mr. WITTMAN, Mr. BACON, Ms. 
SCHRIER, Ms. SCHOLTEN, Mr. FINSTAD, Ms. MCDONALD RIVET, Mr. 
ONDER, Mr. FIGURES, Mr. VINDMAN, Ms. BROWNLEY, Mr. MANN, Mr. 
MCGUIRE, Mr. TIFFANY, Mr. TAYLOR, Mr. CASE, Mr. KHANNA, Mr. 
WILLIAMS of Texas, Mr. FITZPATRICK, Mr. GOTTHEIMER, Mr. BARRETT, 
Mr. VAN DREW, Mr. MFUME, Mr. LAWLER, Mr. GRAVES, Mrs. MCBATH, 
Mr. KILEY of California, Mr. CLINE, Mr. EVANS of Colorado, Mr. SCOTT 
FRANKLIN of Florida, Mr. BOYLE of Pennsylvania, Mr. DAVIS of North 
Carolina, Mr. OBERNOLTE, Ms. ROSS, Ms. CROCKETT, Ms. CRAIG, Mr. 
FLOOD, Ms. TOKUDA, Mr. BOST, Mr. WILSON of South Carolina, Ms. 
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VAN DUYNE, Mr. WEBER of Texas, Ms. POU, Ms. SALINAS, Ms. SALA-
ZAR, Mr. BURCHETT, Mr. GILL of Texas, Mr. GROTHMAN, Mr. HIGGINS 
of Louisiana, Ms. LOIS FRANKEL of Florida, Mr. WESTERMAN, Mr. 
BRESNAHAN, Mr. OGLES, Mr. SORENSEN, Mr. EZELL, Mr. VASQUEZ, 
Mrs. 
CHERFILUS-MCCORMICK, 
Mr. 
KELLY
of 
Mississippi, 
Mr. 
HARIDOPOLOS, Mr. IVEY, Mrs. TORRES of California, Mr. QUIGLEY, Ms. 
SEWELL, Mr. DAVID SCOTT of Georgia, Mr. LATIMER, Mr. MCCORMICK, 
Mr. KEAN, Mr. MORAN, Mrs. HINSON, Ms. WILSON of Florida, Mr. 
ROUZER, Mr. TURNER of Ohio, Mr. OWENS, Mr. HILL of Arkansas, Ms. 
PEREZ, Mr. THOMPSON of California, Mr. STANTON, Mr. TIMMONS, Mr. 
MACKENZIE, Mr. MIN, Mrs. LUNA, Mr. ISSA, Mr. MOSKOWITZ, Mr. 
GOLDMAN
of New York, Mr. LOUDERMILK, Mrs. FOUSHEE, Mr. 
CRAWFORD, Ms. DAVIDS of Kansas, Mrs. KIGGANS of Virginia, Mr. 
VICENTE GONZALEZ of Texas, Mrs. TRAHAN, Mr. PAPPAS, Mr. COLLINS, 
Mr. HUNT, Mr. SESSIONS, Ms. ESCOBAR, Ms. MCBRIDE, Mr. MOULTON, 
Mrs. BICE, Mr. CONAWAY, Ms. WASSERMAN SCHULTZ, Mr. LYNCH, Mr. 
BERA, Mr. AUSTIN SCOTT of Georgia, Mr. GUEST, Mr. GARBARINO, Mr. 
STEIL, Mr. MANNION, Mr. JACK, Ms. MACE, Mr. SMITH of Washington, 
Mr. DELUZIO, Mr. FITZGERALD, Mr. CALVERT, Mrs. BIGGS of South 
Carolina, Ms. BARRAGA´N, Mr. CARTER of Texas, Mr. BEGICH, Mrs. 
HOUCHIN, Mr. DONALDS, Mr. FEENSTRA, Mr. ROGERS of Alabama, Mr. 
PFLUGER, Mr. SHREVE, Mr. SIMPSON, Mr. LEVIN, Mr. MCDOWELL, Mr. 
MILLER of Ohio, Mr. TONY GONZALES of Texas, Mr. HORSFORD, Mr. 
LANGWORTHY, Mr. ELLZEY, Mr. MRVAN, Mrs. HARSHBARGER, Mr. 
SOTO, Mr. TRAN, Mrs. WAGNER, Mr. SMITH of New Jersey, Mr. ZINKE, 
Ms. GARCIA of Texas, Mr. RILEY of New York, Mr. JOHNSON of Georgia, 
Mr. NEWHOUSE, Ms. ELFRETH, Mr. HERNA´NDEZ, Mr. RUTHERFORD, 
Ms. PETTERSEN, Ms. MORRISON, Mr. NUNN of Iowa, Mr. JOYCE of 
Pennsylvania, Mr. MOORE of West Virginia, and Mrs. KIM 
JANUARY 30, 2026 
Reported with an amendment, committed to the Committee of the Whole 
House on the State of the Union, and ordered to be printed 
[Strike out all after the enacting clause and insert the part printed in italic] 
[For text of introduced bill, see copy of bill as introduced on April 10, 2025] 
A BILL 
To combat organized crime involving the illegal acquisition 
of retail goods and cargo for the purpose of selling 
those illegally obtained goods through physical and online 
retail marketplaces. 
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Be it enacted by the Senate and House of Representa-
tives of the United States of America in Congress assembled, 
SECTION 1. SHORT TITLE. 
This Act may be cited as the ‘‘Combating Organized 
Retail Crime Act of 2025’’. 
SEC. 2. FINDINGS. 
It is the sense of Congress that— 
(1) organized theft groups, involving sophisti-
cated and structured groups of individuals, continue 
to increase criminal activities carried out by the 
groups against the retail industry and the supply 
chain of the Nation, and these activities, at unprece-
dented levels, involve theft and fraud of both physical 
and digital goods, leading to escalating financial 
losses and violence in the workplace—all impacting 
the national economy and security of the United 
States; 
(2) retailers face mounting thefts and fraud be-
cause of organized retail crime in and around stores, 
online, and throughout the retail ecosystem, and, ac-
cording to the National Retail Federation, larceny in-
cidents increased by 93 percent in 2023 compared to 
2019, with a 90 percent rise in average dollar loss; 
(3) these thefts are often orchestrated by orga-
nized theft groups reselling and redistributing the sto-
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len goods back into the economy of the United States 
or overseas to gain illicit profit and to finance other 
criminal activity, and more than 84 percent of retail-
ers report that violence and aggression from these 
criminal activities has become more of a concern since 
2022, resulting in injuries and deaths among employ-
ees, customers, security officers, and law enforcement 
personnel; 
(4) product manufacturers and the supply chain 
of the Nation are victims of alarming increases in 
cargo theft across rails, roads, and the various dis-
tribution points across the Nation; 
(5) CargoNet, a database of reported incidents in 
the United States, reported a 27 percent increase in 
cargo theft incidents in 2024 compared to the pre-
vious year, while during the same period, the average 
value per theft rose to over $202,000; 
(6) these thefts range from large-scale physical 
theft of goods from containers and storage to sophisti-
cated cybercriminal methods that divert shipments to 
illicit receivers, causing significant financial losses 
and operational supply chain disruptions; 
(7) since 2022, more than 30 State laws have 
been enacted to address organized theft, allow for ag-
gregation of thefts, and adjust penalties and enhance-
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ments, includin in 2024, California voters overwhelm-
ingly approving a constitutional reform to allow ag-
gregation of multiple or repeated thefts; 
(8) although larceny and organized retail crime 
are sometimes prosecuted at State and local levels, 
States face resource and investigative challenges from 
groups operating beyond local, State, and regional 
law enforcement capabilities, and more needs to be 
done to address the cross-jurisdictional, interstate, 
and international aspects of these crimes; 
(9) organized theft groups vary in scope and 
scale, operating across State jurisdictions to avoid or 
disrupt local, State, and Tribal law enforcement re-
sponse, and these organized theft groups build hierar-
chies to easily redistribute stolen goods and illicit 
profits back into the economy of the United States or 
overseas with disregard for product and consumer 
safety; 
(10) the groups exist and operate at the local, re-
gional, and transnational level, targeting goods that 
include raw and finished materials, various branded 
retail products across all consumer categories, oper-
ational assets in retail commerce such as reusable 
transport packaging products, and consumable goods 
including agriculture, food products, and medicines; 
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(11) these groups are often polycriminal organi-
zations, using profit from the reselling of stolen goods 
to support crimes involving drugs and weapons traf-
ficking; 
(12) the organized theft groups engage in human 
smuggling and have been known to use migrants to 
commit crimes to support the organizations; 
(13) the groups move products and illicit pro-
ceeds beyond the borders of the United States, funding 
nefarious groups and activities and threatening the 
integrity of the international economy; 
(14) organized theft groups— 
(A) threaten the safety and liberty of indi-
viduals in the United States when those individ-
uals engage in commerce; 
(B) impact the ability of the Nation to dis-
tribute goods to consumers, undermine consumer 
confidence in the supply chain, and threaten the 
integrity of agricultural and consumable goods; 
(C) erode the national economy by increas-
ing the cost of goods, resulting in higher prices 
for consumers, reducing tax revenues, and im-
pacting employees, customers, and businesses 
alike; and 
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(D) impact the national security of the 
United States through financing transnational 
criminal activity and providing profit and pro-
ceeds supporting larger criminal goals of the 
criminal organizations; and 
(15) it has become necessary for Congress to— 
(A) amend title 18, United States Code, to 
ensure that law enforcement has the legal tools 
necessary to combat organized retail crime in the 
same capacity that law enforcement is able to 
combat theft and diversion from other portions of 
the supply chain; and 
(B) direct the executive branch to create a 
central coordination center to align Federal, 
State, local, territorial, and Tribal efforts to 
combat organized retail crime and organized 
supply chain crime. 
SEC. 3. AMENDMENTS TO TITLE 18, UNITED STATES CODE. 
Part I of title 18, United States Code, is amended— 
(1) in section 982(a)(5)— 
(A) by redesignating subparagraphs (C), 
(D), and (E) as subparagraphs (D), (E), and 
(F), respectively; 
(B) by inserting after subparagraph (B) the 
following: 
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fraudulent State tax stamps, or articles 
used in counterfeiting), section 2315 (sale or 
receipt of stolen goods, securities, moneys, or 
fraudulent State tax stamps),’’ after ‘‘sec-
tion 2281 (relating to violence against mar-
itime fixed platforms),’’; 
(3) in section 2314, in the first paragraph— 
(A) by inserting ‘‘or of an aggregate value 
of $5,000 or more during any 12-month period,’’ 
after ‘‘more,’’; 
(B) by inserting ‘‘embezzled,’’ after ‘‘sto-
len,’’; and 
(C) by inserting ‘‘, false pretense, or other 
illegal means’’ after ‘‘fraud’’; and 
(4) in section 2315, in the first paragraph, by 
inserting ‘‘or of an aggregate value of $5,000 or more 
during any 12-month period,’’ after ‘‘$5,000 or 
more,’’. 
SEC. 4. ESTABLISHMENT OF A CENTER TO COMBAT ORGA-
NIZED RETAIL AND SUPPLY CHAIN CRIME. 
(a) IN GENERAL.—Title III of the Trade Facilitation 
and Trade Enforcement Act of 2015 (19 U.S.C. 4341 et seq.) 
is amended by inserting after section 305 the following: 
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‘‘SEC. 305A. ORGANIZED RETAIL AND SUPPLY CHAIN CRIME 
COORDINATION CENTER. 
‘‘(a) DEFINITIONS.—In this section: 
‘‘(1) CENTER.—The term ‘Center’ means the Or-
ganized Retail and Supply Chain Crime Coordina-
tion Center established pursuant to subsection (b)(1). 
‘‘(2) ORGANIZED
RETAIL
AND
SUPPLY
CHAIN 
CRIME.—The term ‘organized retail and supply chain 
crime’ includes— 
‘‘(A) any crime described in section 659, 
2117, 2314, or 2315 of title 18, United States 
Code that is committed by, in coordination with, 
or at the instruction of an organization; 
‘‘(B) aiding or abetting the commission of, 
or conspiring to commit, any act that is in fur-
therance of a violation of a crime referred to in 
subparagraph (A); and 
‘‘(C) other crimes related to those described 
in subparagraphs (A) and (B). 
‘‘(3) SECRETARY.—The term ‘Secretary’ means 
the Secretary of Homeland Security. 
‘‘(4) EXECUTIVE
ASSOCIATE
DIRECTOR.—The 
term ‘Executive Associate Director’ means the Execu-
tive Associate Director of Homeland Security Inves-
tigations. 
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‘‘(b) ORGANIZED RETAIL AND SUPPLY CHAIN CRIME 
COORDINATION CENTER.— 
‘‘(1) ESTABLISHMENT.—Not later than 90 days 
after the date of enactment of the Combating Orga-
nized Retail Crime Act of 2025, the Secretary shall 
direct the Executive Associate Director to establish the 
Organized Retail and Supply Chain Crime Coordina-
tion Center. 
‘‘(2) DUTIES.—The duties of the Center shall in-
clude— 
‘‘(A) coordinating Federal law enforcement 
activities related to organized retail and supply 
chain crime, including investigations of national 
and transnational criminal organizations that 
are engaged in organized retail and supply 
chain crime; 
‘‘(B) establishing relationships with State 
and local law enforcement agencies and organi-
zations, including organized retail crime associa-
tions and cargo theft associations, and sharing 
information regarding organized retail and sup-
ply chain crime threats with such agencies and 
organizations; 
‘‘(C) assisting State and local law enforce-
ment agencies with State and local investiga-
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tions of organized retail and supply chain crime 
groups; 
‘‘(D) establishing relationships with retail, 
transportation, and other companies determined 
by the Executive Associate Director to have sig-
nificant interests relating to organized retail and 
supply chain crime threats, sharing information 
with those companies regarding such threats, col-
laborating on investigations and loss prevention 
activities as appropriate, and providing a mech-
anism for the receipt of investigative information 
on such threats; 
‘‘(E) establishing a secure system for shar-
ing information regarding organized retail and 
supply chain crime threats by leveraging existing 
information systems at the Department of Home-
land Security and the Department of Justice; 
‘‘(F) tracking trends with respect to orga-
nized retail and supply chain crime and releas-
ing annual public reports on such trends; and 
‘‘(G) supporting the provision of training 
and technical assistance in accordance with sub-
section (c). 
‘‘(3) LEADERSHIP; STAFFING.— 
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‘‘(A) DIRECTOR.—The Center shall be head-
ed by a Director, who shall be— 
‘‘(i) an experienced law enforcement of-
ficer; 
‘‘(ii) appointed by the Director of U.S. 
Immigration and Customs Enforcement; 
and 
‘‘(iii) in a Senior Executive Service 
position as defined in section 3132 of title 
5, United States Code. 
‘‘(B) DEPUTY DIRECTOR.—The Director of 
the Center shall be assisted by a Deputy Direc-
tor, who shall be appointed, on a 2-year rota-
tional basis, upon request from the Executive As-
sociate Director, by— 
‘‘(i) the Director of the Federal Bureau 
of Investigation; 
‘‘(ii) the Director of the United States 
Secret Service; or 
‘‘(iii) the Chief Postal Inspector. 
‘‘(C) FEDERAL
STAFF.—The staff of the 
Center shall include— 
‘‘(i) special agents and analysts from 
Homeland Security Investigations; and 
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‘‘(ii) detailed criminal investigators, 
analysts, and liaisons from other Federal 
agencies who have responsibilities related to 
organized retail and supply chain crime, 
including detailees from— 
‘‘(I) U.S. Customs and Border 
Protection; 
‘‘(II) the United States Secret 
Service; 
‘‘(III) the United States Postal 
Inspection Service; 
‘‘(IV) the Bureau of Alcohol, To-
bacco, Firearms and Explosives; 
‘‘(V) the Drug Enforcement Ad-
ministration; 
‘‘(VI) the Federal Bureau of In-
vestigation; and 
‘‘(VII) the Federal Motor Carrier 
Safety Administration. 
‘‘(D) STATE AND LOCAL STAFF.—The staff 
of the Center may include detailees from State 
and local law enforcement agencies, who shall 
serve at the Center on a nonreimbursable basis. 
‘‘(4) COORDINATION.— 
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‘‘(A) IN
GENERAL.—The Center shall co-
ordinate its activities, as appropriate, with other 
Federal agencies and centers responsible for 
countering 
transnational 
organized 
crime 
threats. 
‘‘(B) SHARED RESOURCES.—In establishing 
the Center, the Executive Associate Director may 
co-locate or otherwise share resources and per-
sonnel, including detailees and agency liaisons, 
with— 
‘‘(i) the National Intellectual Property 
Rights Coordination Center established pur-
suant to section 305(a)(1); or 
‘‘(ii) other existing interagency centers 
within the Department of Homeland Secu-
rity. 
‘‘(C) AGREEMENTS.—The Director of the 
Center, or his or her designee, may enter into 
agreements with Federal, State, local, and Tribal 
agencies and private sector entities to facilitate 
carrying out the duties described in paragraph 
(2). 
‘‘(D) INFORMATION SHARING.— 
‘‘(i) IN GENERAL.—Subject to the ap-
proval of the Director of the Center, infor-
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mation that would otherwise be subject to 
the limitation on the disclosure of confiden-
tial information set forth in section 1905 of 
title 18, United States Code, may be shared 
if such disclosure is operationally necessary. 
‘‘(ii) NON-DELEGABLE
AUTHORITY.— 
The Director may not delegate his or her 
authority under this subparagraph. 
‘‘(5) REPORTING REQUIREMENTS.— 
‘‘(A) INITIAL REPORT.— 
‘‘(i) IN GENERAL.—Not later than 1 
year after the date of enactment of the Com-
bating Organized Retail Crime Act of 2025, 
the Secretary shall submit a report regard-
ing the establishment of the Center to— 
‘‘(I) the Committee on the Judici-
ary of the Senate; 
‘‘(II) the Committee on Homeland 
Security and Governmental Affairs of 
the Senate; 
‘‘(III) the Committee on the Judi-
ciary of the House of Representatives; 
and 
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‘‘(IV) the Committee on Home-
land Security of the House of Rep-
resentatives. 
‘‘(ii) CONTENTS.—The report required 
under clause (i) shall include a description 
of— 
‘‘(I) the organizational structure 
of the Center; 
‘‘(II) the agencies and partner or-
ganizations that are represented within 
the Center; 
‘‘(III) any challenges required to 
be addressed while establishing the 
Center; 
‘‘(IV) any lessons learned from es-
tablishing the Center, including suc-
cessful prosecutions resulting from the 
activities of the Center; 
‘‘(V) recommendations for ways to 
strengthen the enforcement of laws in-
volving organized retail and supply 
chain crime; 
‘‘(VI) the intersections and com-
monalities between organized retail 
crime organizations and other orga-
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nized theft groups, including supply 
chain diversion and theft; and 
‘‘(VII) the impact of organized 
theft groups on the scarcity of vital 
products, including medicines, per-
sonal protective equipment, and infant 
formula. 
‘‘(B) ANNUAL REPORT.—Beginning on the 
date that is 1 year after the submission of the re-
port required under subparagraph (A), and each 
year thereafter, the Secretary shall submit an 
annual report that describes the activities of the 
Center during the previous year to the congres-
sional committees listed in subparagraph (A)(i). 
‘‘(6) SUNSET.— 
‘‘(A) IN
GENERAL.—The authority of the 
Center shall terminate on the date that is 7 
years after the date on which the Center is estab-
lished under paragraph (1). 
‘‘(B) WIND
DOWN.—The Secretary shall 
take such actions as may be necessary to wind 
down the Center in accordance with subpara-
graph (A). 
‘‘(c) TRAINING AND TECHNICAL ASSISTANCE.— 
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‘‘(1) EVALUATION.—Not later than 180 days 
after the date of enactment of the Combating Orga-
nized Retail Crime Act of 2025, the Secretary and the 
Attorney General shall conduct an evaluation of exist-
ing Federal programs that provide grants, training, 
and technical support to State, local, and Tribal law 
enforcement to assist in countering organized retail 
and supply chain crime. 
‘‘(2) EVALUATION
SCOPE.—The evaluation re-
quired under paragraph (1) shall evaluate, at a min-
imum— 
‘‘(A) the Homeland Security Grant Pro-
gram at the Federal Emergency Management 
Agency; 
‘‘(B) grant programs at the Office of Justice 
Programs within the Department of Justice; and 
‘‘(C) relevant training programs at the Fed-
eral Law Enforcement Training Center. 
‘‘(3) REPORT.—Not later than 45 days after the 
completion of the evaluation required under para-
graph (1), the Secretary and the Attorney General 
shall jointly submit a report to the congressional com-
mittees listed in subsection (b)(5)(A)(i) that— 
‘‘(A) describes the results of such evaluation; 
and 
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‘‘(B) includes recommendations on ways to 
expand grants, training, and technical assistance 
for combating organized retail and supply chain 
crime. 
‘‘(4) ENHANCING OR MODIFYING TRAINING AND 
TECHNICAL
ASSISTANCE.—Not later than 45 days 
after submitting the report required under paragraph 
(3), the Secretary and the Attorney General shall 
jointly issue formal guidance to relevant agencies and 
offices within the Department of Homeland Security 
and the Department of Justice for modifying or ex-
panding, as appropriate, the prioritization of train-
ing and technical assistance designed to counter orga-
nized retail and supply chain crime.’’. 
(b) CLERICAL AMENDMENT.—The table of contents for 
the Trade Facilitation and Trade Enforcement Act of 2015 
(Public Law 114–125; 130 Stat. 122) is amended by insert-
ing after the item relating to section 305 the following: 
‘‘Sec. 305A. Organized Retail and Supply Chain Crime Coordination Center.’’. 
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Union Calendar No. 402 
119TH CONGRESS 
2D SESSION 
H. R. 2853 
[Report No. 119–471] 
A BILL 
To combat organized crime involving the illegal ac-
quisition of retail goods and cargo for the pur-
pose of selling those illegally obtained goods 
through physical and online retail marketplaces. 
JANUARY 30, 2026 
Reported with an amendment, committed to the Com-
mittee of the Whole House on the State of the Union, 
and ordered to be printed 
VerDate Sep 11 2014 
21:17 Jan 30, 2026
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