I 
119TH CONGRESS 
1ST SESSION H. R. 5538 
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 
SEPTEMBER 19, 2025 
Mr. VINDMAN (for himself and Mr. FITZPATRICK) 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. 
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 ‘‘Child Rescue Act’’. 
SEC. 2. FINDINGS. 
Congress finds the following: 
(1) The growing international trade in child 
sexual abuse material creates demand and incentive 
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for the sexual assault of children throughout the 
United States. 
(2) United States law enforcement efforts to 
combat child sexual exploitation have the potential 
to help multiple distinct groups of victims, includ-
ing— 
(A) children depicted in child sexual abuse 
material (CSAM) who are still being abused; 
(B) children and adults whose victimiza-
tion as a child continues to be viewed and 
shared online; and 
(C) children who are being sexually abused 
or exploited by adults who could be interdicted 
while accessing or sharing CSAM online. 
(3) In 2021, law enforcement investigative sys-
tems detected more than 325,000 unique Internet 
Protocol addresses in the United States seen distrib-
uting child sexual abuse material across peer-to-peer 
file sharing networks. 
(4) A growing body of research, including aca-
demic studies, analysis by the United States Sen-
tencing Commission, and findings by law enforce-
ment polygraphers, indicates that a significant per-
centage of majority of individuals possessing and 
sharing CSAM are ‘‘dual offenders’’ who possess il-
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legal imagery and also commit contact offenses. In 
2021, the United States Sentencing Commission 
found that in fiscal year 2019, 48 percent of ‘‘non- 
production child pornography offenders engaged in 
aggravating sexual conduct prior to, or concurrently 
with’’, their current offense. Studies including Seto 
et al, the Butner Redux, the OJJDP study, and 
Bourke et al Tactical Polygraph study have found 
that between 50 and 80 percent of offenders who 
possess CSAM are also committing contact sexual 
offenses against children. 
(5) According to a 2018 study by the National 
Center 
for 
Missing 
and 
Exploited 
Children 
(NCMEC), ‘‘in cases involving a single victim and 
single offender, actively traded cases were associated 
with having prepubescent victims. Actively traded 
cases were also associated with more egregious con-
tent in terms of sexual activity, and more likely to 
involve familial offenders, particularly nuclear family 
members’’. 
(6) CyberTipline reports often lead to the res-
cue of children through the successful investigation 
of offenders who are not only exploiting children by 
circulating CSAM, but who are also committing con-
tact offenses. In 2020, 21,700,000 CyberTipline re-
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ports were submitted to NCMEC and approximately 
288,000 CyberTipline reports were made available to 
the 61 Internet Crimes Against Children (ICAC) 
units across the country. 
(7) United States law enforcement’s ability to 
detect and interdict online traffic in CSAM provides 
an opportunity to locate sexual predators and rescue 
children through victim-centric investigations. 
(8) With inadequate resources, United States 
law enforcement agencies are increasingly unable to 
adequately respond to this rapidly growing number 
of CyberTips and other investigative leads, a prob-
lem which also reduces the number of proactive un-
dercover investigations and education activities they 
can conduct. 
(9) Investigations of these crimes are com-
plicated by the increasing prevalence of encryption 
and anonymizing services available to offenders. 
SEC. 3. UNITED STATES WORKING GROUP ON CHILDREN IN 
IMMINENT DANGER OF SEXUAL ABUSE AND 
EXPLOITATION. 
(a) ESTABLISHMENT.—Not later than 90 days after 
the date of the enactment of this Act, the Attorney Gen-
eral shall establish a national working group, to be known 
as the ‘‘United States Working Group on Children in Im-
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minent Danger of Sexual Abuse and Exploitation’’ (here-
inafter referred to as the ‘‘Working Group’’), to study vic-
tim-centric policing strategies and resource needs to iden-
tify and rescue— 
(1) children in the United States who are vis-
ually depicted in child sexual abuse material; 
(2) children in the United States who are vic-
tims of sexual abuse by individuals who are engaged 
in an offense relating to child sexual abuse mate-
rials; and 
(3) children located outside the United States 
who are visually depicted in child sexual abuse mate-
rials where the perpetrators are in the United 
States. 
(b) DUTIES OF THE WORKING GROUP.— 
(1) INFORMATION
REQUEST.—Not later than 
30 days after the establishment of the Working 
Group under subsection (a), the Working Group 
shall solicit from each State, Tribal, or local law en-
forcement agency the information necessary to de-
velop the estimates under paragraph (2). 
(2) DEVELOPMENT OF ESTIMATES.—The Work-
ing Group shall: 
(A) Develop estimates of the total number 
of individuals suspected with respect to child 
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sexual abuse material or other crimes involving 
sexual contact with children in the United 
States, including those who are— 
(i) known to a law enforcement agen-
cy; 
(ii) identified by law enforcement 
through proactive policing; or 
(iii) reported to the CyberTipline of 
NCMEC 
(or 
any 
successor 
to 
the 
CyberTipline operated by NCMEC). 
(B) Develop estimates of the total number 
of child victims of child sexual abuse in the 
United States who could be located and pro-
tected from further abuse through the appre-
hension of suspects described under subpara-
graph (A). 
(C) Develop recommendations of the fund-
ing, resources, and proactive and reactive strat-
egies necessary for law enforcement agencies to 
successfully identify, locate, and protect child 
victims— 
(i) described in subparagraph (B); 
and 
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(ii) who appear in child sexual abuse 
material known to a law enforcement agen-
cy or NCMEC. 
(D) Develop or obtain estimates of the 
number of child sexual abuse reports made an-
nually to law enforcement agencies and to 
State, Tribal, and local child protective services, 
broken out by locality and relationship between 
victim and offender, including adults in a posi-
tion of trust or authority. 
(E) Develop recommendations for strate-
gies, best practices, and resources that could be 
used by law enforcement agencies to determine 
whether offenders alleged to have committed a 
crime involving sexual contact should also be in-
vestigated for potential child sexual abuse mate-
rial crimes. 
(F) Develop recommendations of victim- 
centric and proactive policing strategies, inter-
national collaboration, and resource needs to 
apprehend offenders in the United States who 
are engaged in offenses related to children as 
described in subsection (a)(3). 
(G) Develop estimates of, or compile data 
solicited under paragraph (1)— 
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(i) the number of adults who were ar-
rested by law enforcement agencies during 
the 5-year period preceding the date of en-
actment of this Act, by year, for offenses 
or violations described in subparagraphs 
(A) through (D); 
(ii) the number of adults who were 
prosecuted at the State, Tribal, or Federal 
level during the 5-year period preceding 
the date of the enactment of the Act, by 
year, for offenses described in subpara-
graphs (A) through (D); and 
(iii) the number of children who are 
unidentified victims of child sexual abuse 
material described in subparagraph (C)(ii). 
(H) Analyze and summarize common rea-
sons why investigations of reports of child sex-
ual abuse or exploitation do not go forward. 
(I) Develop guidance for Internet Crimes 
Against Children Task Forces to adopt a 
prioritization framework with respect to the in-
vestigation and prosecution of all child sexual 
abuse and exploitation, including prioritizing in-
vestigating individuals using encryption or 
anonymization. 
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(J) Develop guidance on the Attorney Gen-
eral’s response to technology companies that 
refuse to comply with lawful requests for infor-
mation related to offenders who use virtual pri-
vate networks. 
(K) Evaluate the current duties and re-
sponsibilities of ICAC Task Forces pursuant to 
section 21114 of title 34, United States Code, 
including on— 
(i) workloads; and 
(ii) their ability to pursue investiga-
tions which are most likely to result in the 
identification of offenders described in sub-
paragraph (A) and children described in 
subparagraph (B). 
(3) REPORT.— 
(A) IN
GENERAL.—Not later than 365 
days after the date of enactment of this Act, 
the Working Group shall submit to the Attor-
ney General, the Committee on the Judiciary of 
the Senate, the Committee on Appropriations of 
the Senate, the Committee on the Judiciary of 
the House of Representatives, and the Com-
mittee on Appropriations of the House of Rep-
resentatives, a report that contains— 
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(i) a detailed statement of the find-
ings and conclusions of the Working 
Group, together with recommendations for 
legislation; and 
(ii) a summary of the support, docu-
ments, and witnesses provided by the At-
torney General to the Working Group. 
(B) MATERIAL
INCLUDED.—A majority 
vote of the members of the Working Group 
shall determine the findings, conclusions, and 
recommendations included in the report sub-
mitted under subparagraph (A). 
(C) 
DOCUMENTATION
OF
NUMERICAL 
EDITS.—If for any reason the Working Group 
is unable to develop the estimates under para-
graph (2), the Working Group shall in the re-
port under this paragraph document the rea-
sons such estimates could not be developed and 
make recommendations toward developing such 
estimates. 
(c) MEMBERS OF THE WORKING GROUP.— 
(1) IN GENERAL.— 
(A) ATTORNEY
GENERAL
DISCRETION.— 
The Working Group shall be composed of rep-
resentatives of Federal departments and agen-
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cies, law enforcement agencies, Tribal govern-
mental agencies, nongovernmental organiza-
tions, and other subject matter experts as the 
Attorney General determines appropriate. 
(B) SPECIFIED MEMBERS.—The Attorney 
General shall appoint representatives of the fol-
lowing agencies and nongovernmental organiza-
tions to the Working Group: 
(i) Three representatives from State 
or unit of local government who have re-
ceived a grant from the Internet Crimes 
Against Children Task Force program with 
extensive, direct experience conducting 
both 
CyberTipline 
investigations 
and 
proactive, online undercover investigations, 
including the use of specialized tools for 
peer-to-peer investigations. 
(ii) The Chief or Deputy Chief of the 
Child Exploitation and Obscenity Section 
of the Criminal Division of the Department 
of Justice. 
(iii) The National Coordinator for 
Child Exploitation Prevention and Inter-
diction of the Department of Justice. 
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(iv) A representative of the Behavioral 
Analysis Unit of the United States Mar-
shals Service with subject matter expertise 
in child exploitation offenders who also 
commit contact offenses. 
(v) A special agent of Homeland Se-
curity Investigations with expertise in both 
CyberTipline investigations and proactive 
online investigations. 
(vi) A subject matter expert within 
Homeland Security Investigations with ex-
pertise in child victim identification. 
(vii) A special agent of the Federal 
Bureau of Investigation with expertise in 
both 
CyberTipline 
investigations 
and 
proactive online investigations and the use 
of polygraphs in child sexual abuse mate-
rial investigations. 
(viii) A representative from the Na-
tional Children’s Alliance with expertise in 
child exploitation and child victim forensic 
interviewing. 
(ix) A special agent of the United 
States Secret Service with expertise in in-
vestigations of child sexual abuse material 
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or polygraphs of child sexual exploitation 
suspects. 
(x) A Postal Inspector at the United 
States Postal Inspection Service with ex-
pertise in child sexual abuse material in-
vestigations. 
(xi) A representative from the Na-
tional District Attorney’s Association. 
(xii) A representative from the aca-
demic community with expertise in devel-
oping technology that can proactively de-
tect the distribution of child sexual abuse 
material online. 
(xiii) A representative of the Office of 
Juvenile Justice and Delinquency Preven-
tion with expertise in available data 
sources and methods for developing preva-
lence estimates using direct and indirect 
methods of estimation. 
(xiv) A representative of the Executive 
Office of the United States Attorney. 
(xv) 
A 
recently 
retired 
Internet 
Crimes Against Children Task Force Com-
mander. 
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(xvi) A representative from National 
Child Protection Task Force. 
(xvii) Representatives from the De-
partment of Justice Office of Tribal Jus-
tice and the Bureau of Indian Affairs Of-
fice of Justice Services. 
(xviii) A representative of the Rape, 
Abuse & Incest National Network with 
subject matter expertise on child sexual ex-
ploitation and abuse. 
(xix) A representative of the Inter-
national Justice Mission with subject mat-
ter expertise on cross-border, live-streamed 
child sexual abuse. 
(C) TECHNICAL ASSISTANCE.—The Work-
ing Group shall establish a Technical Assistance 
Board to provide guidance and technical assist-
ance to the Working Group, composed of the 
following: 
(i) A representative from the ICAC 
Child 
Online 
Protection 
System 
(ICACCOPS) at the National Criminal 
Justice Training Center with subject mat-
ter expertise on child sexual exploitation 
and abuse investigations. 
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(ii) A representative from the Child 
Rescue Coalition with subject matter ex-
pertise on the Child Protection System and 
other child sexual exploitation and abuse 
investigations. 
(iii) A representative from the Na-
tional Center for Missing and Exploited 
Children with subject matter expertise on 
child sexual exploitation and abuse and 
child victim identification. 
The Working Group shall consult with the 
members of the Technical Assistance Board 
throughout the execution of its duties under 
subsection (b). Representatives of the Technical 
Assistance Board under paragraph (1) from 
each organization shall have the right to be 
present at each Working Group meeting. 
(2) CESSATION OF MEMBERSHIP.—If an indi-
vidual is appointed to the Working Group based on 
membership in an agency or organization and the in-
dividual ceases to be a member of that agency or or-
ganization, the individual shall cease to be a member 
of the Working Group on the date on which the 
member ceases to be a member of the agency or or-
ganization. 
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(3) TERMS.—A member of the Working Group 
shall be appointed for the life of the Working Group. 
(4) VACANCIES.— 
(A) VACANCY
BEFORE
EXPIRATION
OF 
TERM.—A member appointed to the Working 
Group to fill a vacancy occurring before the ex-
piration of the term for which the member’s 
predecessor was appointed shall be appointed 
only for the remainder of that term. 
(B) MANNER
OF
APPOINTMENT.—A va-
cancy in the Working Group shall be filled in 
the manner in which the original appointment 
was made. 
(5) COMPENSATION.—A member of the Work-
ing Group shall serve without pay. 
(6) QUORUM.—A majority of the members of 
the Working Group shall constitute a quorum, but 
a lesser number may hold hearings. 
(7) CHAIRPERSON.—The Chairperson of the 
Working Group shall be appointed by the Attorney 
General from the membership of the Working 
Group. 
(8) MEETINGS.—The Working Group shall hold 
virtual meetings monthly, and any subgroup of the 
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Working Group shall hold additional meetings as 
necessary. 
(d) STAFF OF WORKING GROUP; EXPERTS AND CON-
SULTANTS.— 
(1) STAFF.—The Chairperson of the Working 
Group may appoint and fix the pay of additional 
personnel as the Chairperson considers appropriate. 
(2) EXPERTS AND CONSULTANTS.—The Chair-
person of the Working Group may procure tem-
porary and intermittent services under section 
3109(b) of title 5, United States Code. 
(3) DETAILEES.—Upon request of the Chair-
person of the Working Group, the head of any Fed-
eral department or agency may detail, on a reim-
bursable basis, any of the personnel of that depart-
ment or agency to the Working Group to assist in 
carrying out the duties of the Working Group under 
this Act. 
(e) POWERS OF THE WORKING GROUP.— 
(1) SUBPOENA POWER.— 
(A) BY WORKING GROUP.—The Working 
may subpoena witnesses and records related to 
the purposes of this Act. 
(B) ENFORCEMENT.—The district courts 
of the United States have jurisdiction to enforce 
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a subpoena issued under this section. Trial is in 
the district in which the proceeding is con-
ducted. The court may punish a refusal to obey 
a subpoena as a contempt of court. 
(2) HEARINGS AND SESSIONS.— 
(A) IN
GENERAL.—The Working Group 
may, for the purpose of carrying out this Act, 
hold hearings, sit and act at times and places, 
take testimony, and receive evidence as the 
Working Group considers appropriate. 
(B) WITNESSES.—The Working Group 
may administer oaths or affirmations to wit-
nesses appearing before the Working Group. 
(3) POWERS OF MEMBERS AND AGENTS.—Any 
member or agent of the Working Group may, if au-
thorized by the Chairperson, take any action that 
the Working Group is authorized to take under this 
Section, including requesting information. 
(4) OBTAINING OFFICIAL INFORMATION.— 
(A) UNITED STATES AGENCIES AND DE-
PARTMENTS.— 
(i) 
IN
GENERAL.—The 
Working 
Group may secure directly from any de-
partment or agency of the United States 
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information necessary to enable the Work-
ing Group to carry out this Act. 
(ii) 
FURNISHING
INFORMATION.— 
Upon request of the Chairperson of the 
Working Group for information solicited 
pursuant to subsection (b), the head of the 
department or agency of the United States 
shall furnish that information to the Work-
ing Group. 
(B) STATE AND LOCAL INFORMATION.— 
(i) 
IN
GENERAL.—The 
Working 
Group may obtain and review information 
and data from State and local departments 
and agencies for purposes of carrying out 
this Act. 
(ii) COSTS.—The Working Group 
shall pay reasonable costs to state and 
local agencies for records obtained pursu-
ant to subsection (b). 
(5) CLEARANCE
FOR
MEMBERS
OF
WORKING 
GROUP.—In the case that the Working Group inter-
acts with controlled unclassified information, the 
Working Group shall follow all laws, regulations, and 
government-wide policies with respect to such infor-
mation. 
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(f) TERMINATION OF WORKING GROUP.— 
(1) IN GENERAL.—The Working Group shall 
terminate 120 days after submission of the report 
under section 9, unless the Attorney General deter-
mines that such termination is not appropriate. 
(2) RECONVENING
GROUP.—If the Working 
Group terminates under subsection (a), the Attorney 
General may reconvene the Working Group in ac-
cordance with this Act. If the Attorney General re-
convenes the Working Group, the Working Group 
shall be convened in accordance with this section. 
The Attorney General may re-appoint members to 
the Working Group who served a previous term if 
the Working Group is reconvened. 
(g) DEFINITIONS.—In this section: 
(1) CHILD.—The term ‘‘child’’ means any indi-
vidual under the age of eighteen years. 
(2) CHILD
SEXUAL
ABUSE
MATERIAL.—The 
term ‘‘child sexual abuse material’’ shall have the 
meaning given the term ‘‘child pornography’’ in sec-
tion 2256 of title 18, United States Code. 
(3) CRIME INVOLVING SEXUAL CONTACT.—The 
term ‘‘crime involving sexual contact’’ means— 
(A) an offense involving a child under 
chapter 109A of title 18, United States Code, 
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or any attempt or conspiracy to commit such an 
offense; or 
(B) an offense involving a child under a 
State or Tribal statute that is similar to a pro-
vision described in subparagraph (A). 
(4) KNOWN TO LAW ENFORCEMENT.—The term 
‘‘known to law enforcement’’ means that a Federal, 
State, Tribal, or local law enforcement agency has 
evidence of a crime that can be attributed to a per-
son or location, including an email address, Internet 
Protocol address, screen name, universally unique 
identifier, phone number, or other information at-
tributable to that person or location. 
(5) LAW
ENFORCEMENT
AGENCY.—The term 
‘‘law enforcement agency’’ means an agency of the 
Federal Government, a State, a political subdivision 
of a State, or a federally recognized tribe that is au-
thorized by law to supervise the prevention, detec-
tion, investigation, or prosecution of any violation of 
criminal law. 
(6) NCMEC.—The term ‘‘NCMEC’’ means the 
National Center for Missing & Exploited Children. 
(7) 
PROACTIVE
POLICING.—The 
term 
‘‘proactive policing’’ means a covert or undercover 
investigation conducted by a law enforcement agency 
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that involves a person or organization that the law 
enforcement agency believes is engaging or has en-
gaged in an offense or violation relating to child sex-
ual abuse, child sexual abuse material, child exploi-
tation, or child sex trafficking crimes. 
(8) STATE.—The term ‘‘State’’ means each of 
the several States, the District of Columbia, the 
Commonwealth of Puerto Rico, or any other terri-
tory or possession of the United States. 
(9) VICTIM-CENTRIC.—The term ‘‘victim-cen-
tric’’ refers to the systematic focus on the needs and 
concerns of a victim to ensure that services are de-
livered 
in 
a 
compassionate, 
sensitive, 
non- 
judgmental, and culturally considerate manner that 
seeks to minimize retraumatization associated with 
the criminal justice process by providing the support 
of victim advocates and service providers, empow-
ering victims as engaged participants in the process, 
and providing victims an opportunity to play a role 
in seeing their abusers brought to justice. 
(10) UNITED
STATES.—The term ‘‘United 
States’’ means the 50 States of the United States of 
America and the District of Columbia, the Common-
wealth of Puerto Rico, Guam, the Virgin Islands, 
American Samoa, Wake Island, Midway Islands, 
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Kingman Reef, Johnston Atoll, the Northern Mar-
iana Islands, and any other trust territory or posses-
sion of the United States. 
Æ 
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